LOCAL ACTION for MITIGATING and ADAPTING to CLIMATE CHANGE in the VARDAR and SOUTHEAST PLANNING REGIONS Author: Assistant Professor Biljana Puleska, Phd

ASSESSMENT OF LOCAL ACTION FOR MITIGATING AND ADAPTING TO CLIMATE CHANGE IN THE VARDAR AND SOUTHEAST PLANNING REGIONS Author: Assistant Professor Biljana Puleska, PhD

November, 2013 CONTENTS

I. Introduction 5 II. Methodology 6 III. Need and Justification of Local Action for CC Management 7 IV. Results from the two questionnaires 8 1. Results of Questionnaire No. 1 8 2. Results of Questionnaire No. 2 11 2.1. Assessment of the General Legal, Strategic and Institutional Framework for Climate Change (CC) at Local and Regional Levels - Formulation of Local Policy on CC, Setting Priorities and Implementation 11 2.2. Assessment of Capacity for Local Action in the Area of Environmental Management 25 2.3. Assessment of Capacity for Local Action in the Area of Energy Efficiency 26 2.4. Assessment of Capacity for Local Action in the Area of Transport 26 2.5. Assessment of Capacity for Local Action in the Area of Crisis Management and Protection 26 2.6 Assessment of Capacity for Local Action in the Area of Physical and Urban Planning - Common Features of the Vardar and Southeast Planning Regions 29 2.7 Assessment of the Level of Good Governance 33 2.7.1. Level of Effectiveness 33 2.7.2. Level of Participation 34 2.7.3. Level of Equality and Non-discrimination 34 2.7.4. Transparency and Accountability 34 V. Results, Conclusions and Recommendations of the Workshops 35 1. Vardar Planning Region Workshop 35 2. Southeast Planning Region Workshop 35 VI. Strategic Concept – The Role of Physical and Urban Planning for Good CC Management 36 1. Using Both Spatial and Urban Planning to Deal with Climate Change 37 2. Spatial and Urban Planning Capacity for Adaptation to CC 38 3. Spatial and Urban Planning Capacity for CC Mitigation - Reduction of Greenhouse Gas Emissions into the Atmosphere 41

3 4. Legislative Framework in the Republic of Macedonia - Assessment of the Level of Good CC Management through Physical and Urban Planning 42 VII.Conclusions and Recommendations 43 1. Mandate to Plan and Implement CC Policy 43 2. Integration of Climate Change Issues 44 3. Cooperation between Municipalities 45 4. Resources 47 5. Good Governance and Local Action for CC 48 6. Urban Planning 49 7. Collaboration at National and Local Level 52 VIII. Tabular summary: conclusions and priorities, common framework for VPR and SPR 54 1. General CC policy 54 2. Energy 59 3. Transport 59 4. Waste 60 5. Spatial and urban planning 61 6. Crisis management; protection and rescue 62 IX. Results and Conclusions from the Final Event 63

4 I. Introduction

onsidering the risks related to climate Change. This project was undertaken as Cchange (CC) and the challenges of part of the regional project ‘Think Globally, taking effective actions to mitigate and Develop Locally’, jointly managed by the adapt to such change, the Republic of UNDP Office in Skopje, the UNDP Regional Macedonia has ratified international Centre in Bratislava and the Network of instruments in the area of CC, i.e. the UN Associations of Local Authorities of South Framework Convention on Climate Change East Europe (NALAS). The goal of the first (UNFCCC) and the Kyoto Protocol. In 2003, phase was to develop a methodology for the Republic of Macedonia submitted assessing CC management. The recom- its initial National Communication mendations and guidelines, as well as the reporting the level of its implementation list of indicators for the assessment of CC of the obligations of the Convention. management contained in the Final Report Macedonia prepared and submitted on the Implementation of Phase I of the its Second National Communication in Project, enabled the performance of a January 2009. The country is currently comprehensive assessment of manage- working on the preparation of the Third ment of local action for CC as Phase II of National Communication. As a country the Project. Phase II is supported by the that is not included in Annex I of the UNDP Good Governance Centre located UNFCCC, the Republic of Macedonia has in Oslo as a project activity of the UNDP no obligation to reduce its greenhouse Office in Skopje within the Project ‘Local gas emissions into the atmosphere. The Action for Inclusive Development - Local Republic of Macedonia is also bound by Development Programme’ and is aimed the Copenhagen Treaty. At the end of at the application of the CC Management January 2010, on the basis of the Action Methodology in the Vardar and Southeast Plan drafted as a part of the Second Planning Regions. The results achieved in National Communication to the UNFCCC, accordance with the Methodology de- Macedonia established reduction targets scribed below are contained in this Report. and a preliminary list of mitigation The assessment aims to answer questions measures (without quantifying the about the capacity of municipalities in the emissions abatement measures). Vardar and Southeast Planning Regions During the second half of 2012, the UNDP to take local action for the management of Office in Skopje conducted the first phase CC. The assessment is made on the basis of the Project for the Assessment of Good of measurable indicators developed within Governance and Local Action for Climate the first phase of the Project.

5 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

- Questionnaire for Reviewing Rele- II. Methodology vant Documents (plans, strategies and acts) and Responsibilities. Based on The assessment of local capacity for CC the data collected by this Questionnaire, management in the two selected Planning the first deliverable has been prepared, Regions has been conducted in order to i.e. the Inventory of Relevant Docu- determine the situation in the municipalities ments for Local Climate Change Action and to make recommendations for the en- in both Planning Regions. Through a hancement of local capacity to undertake content analysis of the Inventory docu- local CC actions in accordance with CC ments, combined with the answers sub- management practices in the international mitted to Questionnaire 2, the climate community and the EU. The terms of refer- change model and policy has been ence cover the assessment of the capacity determined, as well as the level of inte- of municipalities in both Planning Regions gration of the CC issue in strategic and for CC management and their shared planning documents at local level in the problems. The assessment including the selected Planning Regions. Data was following steps: also obtained on the parties involved in the local CC management process. - Questionnaire for Assessing CC 1. The establishment of a List and Management at Local Level. This collection of relevant data and Questionnaire contains general ques- documents (acts, policies, plans) tions about CC and questions with at national, regional and local levels regard to specific sectoral policies concerning issues of CC management relevant to CC management. Using this in both Planning Regions; Questionnaire, an assessment has been 2. The establishment of a List of performed of the effects of policies relevant national, regional and local related to climate change, and in par- stakeholders and their relevant ticular the effects of actions for mitigat- responsibilities in the CC management ing and adapting to CC in the Planning process applicable for the Vardar and Regions and municipalities, including Southeast Regions; areas suitable for inter-municipal co- 3. The performance of a detailed operation for the purpose of achieving assessment of CC management at good CC management. local level and possible obstacles, as The Questionnaires are based on the well as proposed actions to overcome Methodology for Assessing the Manage- those obstacles. ment of Local Action for CC prepared in the First Phase of the Project (December The Methodology for the implementation of 2012) and treat the management of CC as this comprehensive assessment included a multi-sectoral issue that covers the areas a review of relevant documents (plans, of environment (industrial pollution, waste strategies and acts), visits to municipalities management, water management, ambi- in the two Planning Regions for the purpose ent air quality, nature protection), spatial of conducting interviews and workshops and urban planning, energy, transport, land according within a predetermined time- use and forestry, protection and rescue frame. The assessment data was collected and crisis management, health, and the by having municipal representatives fill out reduction of risk from disasters in efforts questionnaires. Representatives of Local to reduce and adapt to CC. According to Self-Government Units (LGUs) from both the definition used in the methodology, Planning Regions were given two question- good CC management also has to include naires, as follows: improved awareness of knowledge-based management, greater political space for

6 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions civil society participation and cooperation among all stakeholders. The questions III. Need and were designed to obtain data on the degree Justification of of effectiveness, equality, participation, transparency and accountability in manag- Local Action for CC ing climate change. Given that one of the Management goals is to provide a comparative review of the main features of CC management at local level in the Vardar and Southeast Plan- Municipalities have an important dual ning Regions and the municipalities within role in tackling climate change. The first them, with an emphasis on the content and of these consists of taking measures to manner of CC management at local level, reduce local greenhouse gas emissions. an identical Questionnaire was used for These measures are considered to pro- both Regions. The questions contained in vide a local share in achieving national the Questionnaires were categorized into targets for emission reduction, but are also logical groups (chapters): (1) Review of directly aimed at the reduction of CC risks relevant documents and competencies and for the local community. The declared List legislation; (2) Assessment of CC manage- of Measures for the Reduction of Green- ment regarding mitigation and adaptation house Gas Emissions, which the Republic at local level. The data contained in the rel- of Macedonia has submitted as a reflection evant documents and data obtained from of national preparedness for association to the Questionnaire were then analysed. the Copenhagen Accord, contains many measures under local authority, as follows: The assessment in this Report has been made on the basis of replies submit- - In the energy sector: increasing the ted to the two questionnaires. All of the use of renewable energy sources and nine municipalities of the Vardar Planning increasing energy efficiency; Region and eight of the ten municipalities - In the transport sector: rehabilitation of the Southeast Planning Region submit- and maintenance of road infrastructure ted answers to both questionnaires. The and improvement of public and intercity outcomes of the analysis, conclusions and transport by better planning, organi- recommendations are contained in this zation and regulation of transport in Report on the Assessment of CC Manage- urban centres and modernization of the ment at Local Level. means of transport; The findings of this Report, and the gaps - In the waste sector: establishment of a identified herein, will be discussed during system for efficient capturing of meth- two regional workshops to be held in both ane and raising public awareness of Planning Regions. These workshops are the restriction on uncontrolled burning expected to supply additional data that will of waste and the reduction of methane help to make a complete assessment of the emissions by enhancing the system for capacities of municipalities in both Plan- waste-water treatment; ning Regions to take local action for climate - In the agriculture and forestry sector: change. preparation of projects using the Clean Development Mechanism in agriculture, implementation of national strategic documents in the forestry sector, af- forestation, measures for the prevention of fires, the prevention of illegal forest logging, etc. The second role of municipalities in managing climate change consists of determining the specific local CC-related risks they

7 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

face (e.g., municipalities located in coastal mance of their municipal responsibilities as areas and near water-flows are more vul- established by law and for the accomplish- nerable to the negative effects of climate ment of their common interests and goals. change on water—effects that pose a great risk to the population’s life and health, property, economic activity and well-being IV. Results from the two and the status of the urban infrastructure in the area). questionnaires Local action is aimed primarily at reducing This Chapter deals with the assessment the local risks of CC. This is because the of the capacities of municipalities in the effects of climate change are manifested Vardar and Southeast Planning Regions to at local level and because vulnerability and manage climate change (CC). The assess- adaptive capacity are determined in local ment of municipal capacity to deal with CC conditions. Moreover, the likelihood of in these Planning Regions applies analo- adaptation measures being implemented is gously to the capacity of all municipalities. highest at local level. Therefore, the conclusions and recommen- Taking measures at local and Planning dations in this Report can be adequately Region levels can be justified from several replicated in each LGU in the Republic of aspects. First, many of the measures en- Macedonia. However, the implementa- visaged and taken to mitigate and adapt tion of recommendations in other Planning to climate change fall within the original Regions that are not subject to the current competencies of Local Government assessment will need to take into ac- Units. These competencies include urban count the characteristics of the particular and rural physical planning; the issuance Planning Region pertinent to for local CC of permits for the construction of build- management. ings of local importance; spatial and land development; measures for environmental protection; local economic development Integrated data from the responses to planning; the identification of development both questionnaires from the Vardar and and structural priorities; utilities; the prepa- Southeast Planning Regions is presented ration and implementation of measures for in diagrams. Evaluation of the responses the protection and rescue of people and was performed using a scale from 0 to 4 for property from natural disasters and other each individual question related to deal- accidents; fire protection, etc. ing with CC, as follows: 0 if the answer is “no”, 1 if the response is “insufficient”, 2 to Through their local development and urban denote “partial”/ “good”, 3 to denote “sat- planning policies, LGUs can increase the isfactory”, and 4 to denote “yes”. resilience of the urban and rural population and infrastructure to climate change. Furthermore, municipalities have a num- 1. Results of Questionnaire No. 1 ber of competencies delegated to them by special laws for providing relevant CC One of the notable results emerging from mitigation and adaptation measures. Thus the answers to Questionnaire No. 1 is the the municipalities appear as the imple- Inventory of Relevant Local Strategic and menters of central policies, for example in Planning Documents for planning and tak- the area of energy consumption and energy ing local action in individual sectoral poli- efficiency. cies relating to for mitigating and adapting As an option for dealing with CC that di- to climate change. There are a total of 130 rectly affects their areas, LGUs have a legal local planning and programming docu- mechanism available for the establishment ments related to CC concerning municipali- of inter-municipal cooperation for achieving ties in the Vardar and Southeast Planning more efficient and cost-effective perfor- Regions. These documents relate to the

8 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions following areas of sustainable develop- tation are older or expired. In those munici- ment: Local Environmental Action Plans; palities on whose territory installations are water management, especially in terms of located which are subject to a B integrated protective measures; ambient air quality; environmental permit, the municipalities nature protection; waste management; have issued the B integrated environmental spatial and urban planning; healthcare; permit under the statutory timeframe. land use and management; forestry and This indicates that municipalities in both protected areas; risks and disasters; trans- Planning Regions have several key instru- port; energy. ments available to take local action for A relevant document on local action for climate change mitigation through the climate change regarding the entire ter- control of greenhouse gas emissions in the ritory of the Republic of Macedonia is the atmosphere and adaptation to the adverse 2012–2015 Action Plan for the Development effects of CC. These instruments include: of New Policies and the Promotion of Local -- Urban plans and other documentation Initiatives in Dealing with Climate Change. for local urban planning; The Action Plan is a result of cooperation -- LEAPs; between ZELS and NALAS based on the -- B integrated environmental permits; Programme of the UNDP Regional Centre in Bratislava and the Project ‘Think Glob- -- Energy efficiency programmes; and ally, Develop Locally’. This paper presents a -- Strategic environmental assessment. framework which, in accordance with LGUs’ Based on the responses to Questionnaire powers, defines the solutions and activities 1, a List of Stakeholders Relevant to the CC that ZELS and municipalities in the Repub- Management in the Southeast and Vardar lic of Macedonia will have to undertake by Planning Regions has been drafted. At 2015 in order to increase their capacity to national level, the relevant stakeholders in cope with the risks and impacts of climate climate change policy-making and guid- change and to enhance their capacity for ing local action for climate change are as energy management. The Action Plan ad- follows: dresses only those issues that are assigned 1. The National Climate Change to the Local Government Units as respon- Committee sibilities, including energy management capacity at local level, the energy efficiency 2. The Ministry of Environment and of buildings, the management of ecosys- Physical Planning tems and the planning of land use. -- State Councillor / UNFCCC Focal Point -- Department of Sustainable It is evident that the municipalities in both Development and Investments Planning Regions are not at the same level -- Department of Physical Planning of planning. The conclusion is that urban centres have a greater planning capacity. In -- Environmental Administration both Planning Regions, the most numerous -- Macedonian Environment planning documents in all municipalities Information Centre are the Local Environmental Action Plans -- Public Relations Office (LEAPs), city plans and documentation and 3. The Spatial Planning Agency programmes for increasing energy efficien- 4. The Ministry of Agriculture, Forestry cy. Most LEAPs are of recent date and are and Water Economy prepared in accordance with the Method- ology for Preparation of the LEAP, which -- Council for Agriculture and Rural Development outlines the procedure and method of plan preparation. The same applies to energy -- National Hydrometeorological efficiency programmes. In the majority of Service municipalities, urban plans and documen- -- Phytosanitary Administration

9 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

-- Water Directorate guiding local action for climate change are -- Department of Forestry and Hunting as follows: -- Department of Agriculture -- Department of Rural Development 14. The Vardar Planning Region Council -- Department for Registration and 15. The Vardar Region Development Management of Agricultural Land Centre -- PE “Macedonian Forests” (regional 16. The 9 Municipalities in the Vardar subsidiaries in the Vardar and Planning Region: Southeast Planning Regions) -- Sveti Nikole Municipality -- Water Supply and Aquatic Communities in the Vardar and -- Lozovo Municipality Southeast Planning Regions -- Veles Municipality -- Forest Holding ‘Babuna’ -- Chashka Municipality 5. The Ministry of Economy -- Gradsko Municipality -- Department of Energy -- Rosoman Municipality -- Department of Industry -- Kavadarci Municipality -- Department of Transport -- Negotino Municipality -- Energy Regulatory Commission -- Demir Kapija Municipality -- Energy Agency 17. The Southeast Planning Region -- Operators: ELEM / MEPSO Council 6. The Ministry of Transport and 18. The Southeast Planning Region Communications Development Centre -- Fund for National and Regional 19. The 10 Municipalities in the Southeast Roads Planning Region: -- PE “Macedonia Road” -- Radovish Municipality 7. The Ministry of Health -- Konche Municipality -- Institute for Public Health -- Strumica Municipality -- National Public Health Institute -- Vasilevo Municipality -- Municipal Institute of Public Health -- Bosilovo Municipality 8. The Ministry of Local Self-Government -- Novo Selo Municipality -- Regional Development Bureau -- Valandovo Municipality 9. The Ministry of Finance -- Bogdanci Municipality 10. The Ministry of Foreign Affairs -- Dojran Municipality -- Gevgelija Municipality 11. The Directorate for Protection and Rescue (and regional offices in the 20. Regional Branches of Chambers of Vardar and Southeast Planning Commerce Regions) 21. Public utility companies 12. The Centre for Crisis Management -- PUC “Derven”- Veles (and regional centres in the Vardar and -- PE “Komunalec” - Kavadarci Southeast Planning Regions), Spatial -- PUCH Komunalec Strumica Crises Headquarters - Sveti Nikole -- PEW - Veles 13. The State Statistical Office -- Hydrosystem Lisiche - Veles At regional and local levels (in both se- -- PUCH Topolka - Chashka lected Planning Regions), the stakeholders -- Public Utility Company - Negotino in policy-making on climate change and in -- PUCH “Ogražden” Bosilovo

10 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

-- PE Plavaja - Radovish 2. Results of 22. Local business associations and Questionnaire No. 2 representatives of the private sector in the Vardar and Southeast Planning Regions: 2.1. Assessment of the General Legal, -- Industry (A and B installations) Strategic and Institutional Frame- -- Agriculture work for Climate Change (CC) at -- Licensed companies for physical Local and Regional Levels - Formu- and urban planning lation of Local Policy on CC, Setting -- Economic operators dealing in Priorities and Implementation passenger transport The first group of questions of Question- The relevant educational institutions at naire 2 were designed to assess the legal, national and local (regional) levels are as strategic and institutional framework that follows: enables local action to tackle climate 23. ICEIM-Macedonian Academy of change. As stated in the Report drafted Sciences and Arts in the first phase of the Project, Macedo- 24. The Institute of Agriculture nia is among the group of countries that have no law on CC, i.e. CC provisions are The relevant civil society organisations are not codified in a single legal document. as follows: Responsibility for dealing with CC at local 25. ZELS or regional levels is not foreseen in the 26. NALAS Law on Environment, nor is it provided by 27. The National Architects’ Association of the Law on Local Self-Government. The Macedonia authority which prepares the National Plan for CC is only entitled to give a mandate 28. Coordinating Body of NGOs for to municipalities for the implementation of climate change measures and actions adopted at central 29. CELOR (Radovish) level, but not for local policy-making on 30. “Villa Zora” - Veles CC. In conclusion, the positive legislation 31. PUCH “Ogražden” - Bosilovo of the Republic of Macedonia imposes no obligation on municipalities (or forms 32. Ecological Society “Izgrev (Sunrise)” of inter-municipal cooperation) to adopt Sveti Nikole a local / regional planning document that refers solely to CC. This lack of mandate has been confirmed by the answers to the Questionnaire. No local legal and strategic framework that applies directly to climate change has been registered in any of the municipalities of the two Planning Regions.1 Consequently, the key priorities of sectoral policy on CC at local level have not been defined. Nevertheless, municipalities did cite the presence of key elements for dealing with climate change in sectoral policies, as follows: the management of environment media / areas, spatial and urban planning, local transport and roads, energy and en-

1 Negative answers were given to question 2.1. by all the municipalities surveyed.

11 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

ergy efficiency, land management, forestry de facto situation shows that explicit refer- and crisis management. This suggests that ences to climate change are lacking. In 100% the sectoral legal framework directly assigns of cases, the municipalities of both Plan- specific tasks (including tasks associated ning Regions responded negatively to the with CC) to local governments, such as urban questions about whether the topic of climate planning, local transport, waste manage- change is directly integrated in the spatial and ment, utilities, and the protection and rescue urban planning documents of the Municipal- of people and goods).2 Only one municipality ity. The same applies to other planning and of the VPR stated that the elements of CC programming documents in other areas (Lo- management are not regulated even in partial cal Environmental Action Plans, energy use sectoral policies.3 and energy efficiency, local transport, waste Norms associated with CC are included in management, water management, and the several sectoral laws that focus on various protection and rescue of people and goods). aspects related to mitigation or adaptation. Therefore, it may be concluded that certain These laws assign specific tasks or respon- issues are addressed, but not in a way that sibilities to Local Government Units that are ensures a uniform and immediate response interconnected, but do not explicitly integrate to CC. However, certain responses lead to the context of CC. For example, the legal the conclusion that urban plans and related gap in the Law on Urban Planning and the planning documents contain an indication non-integration of the issue of mitigation and or implied reference to CC as measures of adaptation to CC as an aspect of spatial and mitigation and adaptation to CC. urban planning result in a lack of address- Regarding the question as to whether ing the issue in practice,4 i.e. addressing the municipalities had established a strategic issue on a voluntary basis, depending on the framework and priorities that included all capacity of the municipal administration to in- stakeholders in the Municipality, and how troduce the impact-related climatology data this inclusion had been achieved, only four into the urban planning documentation.5 The municipalities6 stated that there was no practice of public participation in decision- making. The others specified mechanisms 2 Some declared that such strategic priorities of public debates, forums, participation in are set out in the LEAP, the LED Strategy, the Council meetings, participation in the bodies Green Agenda, and the Municipality’s Crisis Management Plan. of municipal authorities, etc. This practice is 3 Kavadarci Municipality. crucial for assessing the vulnerability of the 4 For example, in the municipalities of Bosilovo municipalities and the Regions as a whole and Radovish in the Southeast Planning if the planning document refers to regional Region, and in the municipalities of Negotino, level. To the question of whether there is a Veles, Lozovo and Rosoman in the Vardar separate body or institutional cooperation in Planning Region. the determination of local sectoral strategies, 5 For example, in the municipalities of all except three municipalities7 answered that Bogdanci, Konche and Strumica of the SPR and in the Municipality of Gradsko of the VPR, no such body or cooperation exists, though the issue is addressed by sectoral policies on they also recognized the need for its intro- the energy efficiency of buildings, spatial and duction. urban planning, transport conditions, waste management, water management, protection and rescue; by energy passports for buildings; In Sveti Nikole Municipality, by the on human health, measures for reducing the management of environment media / areas, impact on ambient air, measures for reducing spatial and urban planning, transport and increased noise, measures for the reduction roads, land management, forestry and crisis of impacts on soil, waste management and management and the key priorities identified the impacts on the quality of surface and in the Local Environmental Action Plan of ground waters. Sveti Nikole; in the Municipality of Novo Selo, 6 Bosilovo, Vasilevo, Kavadarci and Chashka. through measures for reducing the impact 7 Novo Selo, Rosoman, Sveti Nikole, and Veles.

12 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Characteristic of municipalities in both to their specific local or regional context. Planning Regions is that there is no single Analysis of the responses to the Question- approach to determine local priorities in naires suggests several basic problems: sectoral policies under local authority. (This there are no local targets set for reducing does not apply to the prioritizing process emissions at local or regional level; there in the LEAPs, since the methodology for is no inventory of emissions and sinks of identifying priorities in LEAPs is uniform and greenhouse gases; the plans do not take regulated with a bylaw.) Some of the mu- sufficient account of CC and it cannot be nicipalities did not answer the question as argued with certainty that the measures are to how they determined their priorities, and set out in this direction, nor that a method some answered that they did not determine for implementing such measures has any priorities.8 Some municipalities9 stated already been adopted in this direction. Fi- that their strategic priorities were deter- nally, the financial capacity of municipalities mined by the Municipal Council or referred and their deficit of capacity to implement to the priorities set forth in the Law on Local local measures on climate change emerge Self-Government. Some said that their pri- as primary obstacles. Most municipalities11 orities arise from both horizontal and verti- declared they faced specific barriers that cal cooperation with state institutions and may impede their efforts to mitigate and donors.10 The rest stated that they identified adapt to climate impacts. These barriers their priorities through public forums, par- can be summarized as follows: ticipation in Council meetings, participation -- Non-alignment of the sectoral priorities in the bodies of municipal authorities, inter- of local administration. There is a lack municipal cooperation, etc., implying that of any management structure with the public participation in the decision-making capacity to coordinate, monitor and process is the main mechanism for deter- control the implementation of measures mining the priorities of Local Government. to be implemented cross-sectorally As a result of this practice, most measures both in terms of mitigation issues and are chosen on an ad hoc basis according to adaptation issues. The different sectors of local administration have different their adequacy for achieving results visible interests and priorities. in the short term, rather than applying clear criteria for setting priority measures to -- Insufficient capacity and expertise. Lack of capacity and technical achieve effective results. expertise for managing CC is the main Systemically, the process of priority identifi- obstacle to the creation, integration cation in sectoral policies, and consequent- and implementation of climate change ly the setting of priorities for local action on policy in the VPR.12 The municipalities climate change, is led at national level as a responded negatively to the question centralized process. This framework implies of whether local governments have the creation of a national policy that will be departments or staff dedicated to implemented or taken into consideration by policy-making or action on CC, saying that the issue is taken care of by other the authorities of Local Government Units municipal administration organizational in their decision-making. In this model, the units. CC is most often an issue that is central government makes different secto- addressed within the Local Economic ral policies and identifies national priorities Development Department and the that are imposed on LGUs, but also leaves Department of Urban Planning and them some room to develop their local or regional policies and priorities appropriate 11 With the exception of Bogdanci Municipality. Kavadarci stated that there are no grounds 8 Kavadarci, Gradsko, Negotino, Chashka, impeding CC efforts. Bosilovo and Vasilevo. 12 With the exception of Kavadarci Municipality, 9 Strumica and Konche. which declared that it has departments and 10 Radovish Municipality. staff dedicated directly to CC.

13 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Environment Protection. (See Table and drainage and water treatment). 1 for the Vardar Planning Region and Table 2 for the Southeast Planning Region); Through their influence on infrastructure -- Lack of support from central development and the provision of utilities, government. This often hinders the municipalities can influence the usage and effectiveness of municipalities in disposal of waste, which is directly related implementing measures for climate to CC measures. All municipalities said they change. Local action is highly were unable to assume the role of regula- conditioned by the (non) existence tors, i.e. LGUs do not have the authority to of national programmes, legislative, adopt regulations for the reduction of CO2 regulatory and policy frameworks emissions regarding issues under their and the level of support from the direct jurisdiction, i.e. space and land use, central government to implement local initiatives. The existence of national transport and waste management. How- policies and measures in terms of ever, the key issue for the implementation planning (e.g. improving the energy of CC policy, whether or not municipalities efficiency standards of performance have the autonomy to create a local strat- of buildings) is important in order egy, is the issue of the institutionalization to provide guidance and facilitate of CC policy within the local administra- local action among local actors. Lack tion and its integration with other sectoral of proper regulation in key areas is plans. The answers to the Questionnaires considered a major obstacle. show that the institutional mechanisms of Other serious obstacles identified include: LGUs to implement local action for climate -- Lack of adequate funding is a key change consist of the concentration of obstacle to the implementation of powers in either the Department of En- policies for CC. (See Table 3 and 4); and vironment Protection or the Department -- Lack of initiatives from NGOs and civil for Urban Development and Construc- society. tion or another department / unit of local The answers gathered from the two administration. Regarding the municipali- questionnaires show that municipalities do ties that concentrate their authority in the not have sufficient capacity to implement Department of Environment Protection, the CC policy. The capacity of municipali- problem of implementation is more intense ties to implement CC policies and action because it concerns a new department that plans is closely related to the regulatory lacks human capacity, appropriate political model management. In accordance with influence and an adequate budget for the the regulations and the responses to the implementation of priorities and measures. Questionnaires, all municipalities indicated that they have considerable autonomy to make decisions about the use of renewable energy sources and energy efficiency programmes, transportation planning, and the adoption of strategies for local and regional development. According to the responses from the Questionnaires, the municipalities of both Planning Regions can implement CC-related sectoral policies by: -- Performing their municipal responsibilities (EE in public buildings and building units); -- Forming public-private partnerships for infrastructure and services; and -- Providing direct services (water supply

14 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Table 1. CC capacity and expertise in the local administration of the VPR

Veles Gradsko Negotino Sveti Nikole

No staff for CC One person No staff for CC No staff for CC

LED Department and Department of Urban Department of Urban Environmental Protec- Planning and Environ- Planning and Environ- tion Department ment Protection and ment Protection Department of Utilities

Lozovo Rosoman Demir Kapija Chashka Kavadarci

No staff Insufficient number No staff for YES for CC of staff CC

LED Department Joint VPR Depart- / ment of Energy Effi- ciency in Negotino

Table 2. CC capacity and expertise in the local administration of the SPR

Bosilovo Novo Selo Vasilevo No staff for CC No staff for CC No staff for CC

/ No, through the LED Department, Through other organi- Department of Utilities and Depart- zational units ment of Urban and Physical Planning and Environment Protection

Konche Strumica Bogdanci Radovish No staff for CC There is CC A person in charge There is CC staff staff of matters relating to the environment, a utility inspector and a person responsible for protection and rescue Department of LED Depart- LED Department, Through the Urban Plan- Urban Planning ment - Environ- Urban Planning Unit ning Department, there is a and Environment ment Protection person in charge of environ- Protection Unit ment and an LED Unit

15 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Table 3. Barriers to the implementation of CC policy in the SPR

Questions Bosilovo Konche Vasilevo Novo Selo What are the most Lack of ad- Insufficient / Insufficient capac- frequent problems for equate funding, capacity and ity and expertise, the Municipality in the lack of capacity expertise and lack of adequate implementation of and expertise lack of finance funding, lack of each sectoral policy? jurisdiction over matters which affect the level of greenhouse gases in the atmosphere Does central govern- Yes Partially Central govern- Insufficiently ment give priority ment provides (technical support, full support for human and financial action on climate resources) to action change at local for CC at the local level level? Does the central No Insufficiently No data Yes government provide incentives, grants etc. to local governments and / or public enterprises for action on CC or other infrastructure ventures that are aimed at preventing the effects of CC? Does the central No Insufficiently / Yes government provide special resources to implement plans and strategies related to CC (environment management, energy, waste management, ambient air quality, and other strategic and planning documents)? Please assess the / Insufficient / The existing fiscal existing fiscal instru- instruments are ments that can be underused used to fund local action for CC including forms of cooperation (public-private partnership, outsourcing).

16 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Questions Bosilovo Konche Vasilevo Novo Selo Are municipal rev- No No / No enues sufficient to ensure infrastructure investments so that basic municipal functions that influence CC can be performed? Is the municipal Partially Insufficiently / Insufficiently administration in your community, especially the local policymakers, aware of the responsibilities of the Municipality in dealing with CC, and to what extent? Are there any No No / Yes initiatives of various stakeholders (local authorities, service providers, private business sector, individual citizens / groups) to reduce emissions of greenhouse gases in the Municipality?

17 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Questions Strumica Bogdanci Radovish What are the most Lack of authority There is a absence of inter- Absence of interde- frequent problems for regarding these departmental cooperation partmental coop- the Municipality in the issues and lack of within the local administra- eration within local implementation of support from cen- tion and lack of adequate administrations, lack each sectoral policy? tral government funding of structure that could coordinate, monitor and control the activities of so many different sectors involved in dealing with climate change, insufficient capacity and expertise, lack of adequate funding, lack of jurisdiction over matters which affect the level of greenhouse gases in the atmosphere Does central govern- No Yes, by strengthening local Yes ment give priority capacities to fulfil legal (technical support, obligations, strengthening human and financial programming, managerial resources) to action and financial capacities of for CC at the local LGUs, establishing and sup- level? porting local initiatives and actions in dealing with CC, and enhancing municipal cooperation. It initiates cooperation and coordination with municipalities to build mechanisms for management, monitoring and control Does the central So far we have Provides grants through Yes government provide not used such borrowing from the World incentives, grants mechanisms Bank and other institutions etc. to local govern- and Funds for this purpose ments and / or public enterprises for action on CC or other infrastructure ventures that are aimed at preventing the effects of CC?

18 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Questions Strumica Bogdanci Radovish Questions Strumica Bogdanci Radovish What are the most Lack of authority There is a absence of inter- Absence of interde- Does the central No It does, through the Partially frequent problems for regarding these departmental cooperation partmental coop- government provide programmes for financing the Municipality in the issues and lack of within the local administra- eration within local special resources to activities in this area by the implementation of support from cen- tion and lack of adequate administrations, lack implement plans and relevant ministries each sectoral policy? tral government funding of structure that could strategies related coordinate, monitor to CC (environment and control the activi- management, en- ties of so many differ- ergy, waste manage- ent sectors involved ment, ambient air in dealing with climate quality, and other change, insufficient strategic and plan- capacity and expertise, ning documents)? lack of adequate fund- Please assess the The Municipality Municipal budget (obstacle Budgets of LGUs, PPP, ing, lack of jurisdiction existing fiscal instru- has the option of in giving priority to projects donations, grants from over matters which ments that can be signing a Public- in this area); the central govern- affect the level of used to fund local ac- Private Partner- Budget of RM - support ment budget, social greenhouse gases in tion for CC including ship only for from central level; responsibility of local the atmosphere forms of cooperation activities under Grants; companies Does central govern- No Yes, by strengthening local Yes (public-private part- the Municipality’s Domestic and foreign do- ment give priority capacities to fulfil legal nership, outsourc- public jurisdiction nors (donor funds); (technical support, obligations, strengthening ing). Public Private Partnership human and financial programming, managerial (PPP); resources) to action and financial capacities of Loans for CC at the local LGUs, establishing and sup- Are municipal rev- Partially The low Municipality Budget No level? porting local initiatives and enues sufficient to complicates the planning actions in dealing with CC, ensure infrastructure and implementation of and enhancing municipal investments so that measures in this area. It cooperation. basic municipal func- is difficult to find external It initiates cooperation and tions that influence funds. coordination with munici- CC can be per- It is difficult to meet the palities to build mechanisms formed? requirements for taking out for management, monitor- commercial loans. High in- ing and control terest rates (10% -15%) are Does the central So far we have Provides grants through Yes hampering investment. government provide not used such borrowing from the World Is the municipal Additional educa- They are pretty well ac- Insufficiently incentives, grants mechanisms Bank and other institutions administration in tion is necessary quainted with the municipal etc. to local govern- and Funds for this purpose your community, authorities in dealing with ments and / or public especially the local CC enterprises for action policymakers, aware on CC or other infra- of the responsibilities structure ventures of the Municipality in that are aimed at dealing with CC, and preventing the effects to what extent? of CC? Are there any Insufficiently For the time being, the ini- Yes, the private busi- initiatives of various tiatives come only from the ness sector, individual stakeholders (local local government due to the citizens and civic as- authorities, service low awareness of environ- sociations. providers, private ment protection among the business sector, private sector and individual individual citizens / citizens and groups groups) to reduce emissions of greenhouse gases in the Municipality?

19 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Table 4. Barriers to the implementation of CC policy in the VPR

Questions Veles Gradsko Negotino Sveti Nikole Lozovo What are the most Insufficient No funds Organiza- Lack of Lack of ad- frequent problems capacity and tional, staff- adequate equate funding, for the Municipal- expertise; ing, financial funding, lack no competence ity in the imple- lack of adequate barriers of expertise, over matters mentation of each funding; lack of available which affect the sectoral policy? low awareness of funds and poor level of green- the importance information house gases in and significance about them the atmosphere of CC at local level; the CC office at the line Ministry has almost no activities with the local government in terms of coordination, communication, know-how, etc. Does the central No Yes Yes, as nec- It starts to give Yes, in part, in government essary priority, but so terms of techni- provide special far, we have cal support resources to im- not had any and human plement plans and technical sup- resources strategies related port, human to CC (environ- and financial ment manage- resources. ment, energy, waste management, ambient air quality, and other strategic and planning documents)? Does the central No Yes Yes, as nec- Yes, but insuf- No, so far the government essary ficiently central govern- provide incentives, ment has not grants etc. to local provided any governments and grants and the / or public enter- other to local prises for action governments on CC or other and / or public infrastructure enterprises for ventures that are action on CC aimed at preventing the effects of CC?

20 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Questions Veles Gradsko Negotino Sveti Nikole Lozovo Does the central We have no infor- Yes Yes, through No, not at a sat- In part, through government mation the MEPP, isfactory level. the adopted provide special Energy Strategic Local resources to im- Agency, MTC Level Urban plement plans and Development strategies related Plans by the to CC (environ- Ministry of ment manage- Environment ment, energy, and Physical waste manage- Planning ment, ambient air quality, and other strategic and planning documents)? Please assess Legal possibilities Poor Currently, Taxes, PPP, In part, through the existing fiscal exist, but are still they do not concessions, the adopted instruments that underutilized. exist donations, Strategic Local can be used to loans, etc. The Level Urban fund local action Municipality Development for CC including of Sveti Nikole Plans by the forms of coopera- is open to any Ministry of tion (public-private kind of financial Environment partnership, cooperation and Physi- outsourcing). regarding CC. cal Planning, Annual Energy Efficiency Pro- gramme Are municipal No No They are not No The existing revenues suf- sufficient fiscal instru- ficient to ensure ments do not infrastructure meet the fund- investments so ing needs of that basic munici- local action for pal functions that CC, including influence CC can forms of coop- be performed? eration through Public-Private Partnership, outsourcing, etc. Municipal revenues are not sufficient to ensure infrastructure investments for performing basic municipal functions that influence CC.

21 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Questions Veles Gradsko Negotino Sveti Nikole Lozovo Is the municipal Municipal budg- No They are They are par- Yes, they are administration ets for addressing familiarized tially aware. partially aware in your commu- environmental under legal of the respon- nity, especially the issues are ex- regulations sibilities of the local policymak- tremely low. The Municipality in ers, aware of the number of people dealing with CC. responsibilities dealing with this of the Municipal- issue is limited in ity in dealing with municipalities. In CC, and to what general, there are extent? one to two officers who cover environmental issues. There are no CC specialists. Are there any No, all par- No Yes, through Primarily, they There are no initiatives of vari- ticipants need demands are initiatives of initiatives of var- ous stakeholders to be aware of for strict local authorities ious stakehold- (local authorities, the importance observance and NGOs, and ers to reduce service providers, and possibility of laws also the private emissions of private business of implementing sector, primarily greenhouse sector, individual initiatives and of in energy effi- gases citizens / groups) the benefits from ciency. to reduce emis- them. sions of greenhouse gases in the Municipality?

22 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Questions Rosoman Demir Kapija Chashka Kavadarci What are the most Insufficient Lack of structures Insufficient Lack of munici- frequent problems for capacity and to coordinate, capacity and pal bodies and the Municipality in the expertise; monitor and expertise, lack cross-sectoral implementation of each lack of control the ac- of adequate cooperation, sectoral policy? adequate fund- tivities of so many funding lack of financing ing; different sectors sources low awareness involved in deal- of the impor- ing with CC, in- tance and sufficient capacity significance and expertise, of CC at local lack of adequate level. funding Does the central govern- / No We deem it is No ment provide special not sufficient resources to implement plans and strategies related to CC (environment management, energy, waste management, ambient air quality, and other strategic and planning documents)? Does the central govern- No No, or very little. We are not / ment provide incentives, aware. grants etc. to local governments and / or public enterprises for action on CC or other infrastructure ventures that are aimed at preventing the effects of CC? Does the central govern- We have no No They are not / ment provide special information. provided. resources to implement plans and strategies related to CC (environment management, energy, waste management, ambient air quality, and other strategic and planning documents)? Please assess the exist- Legal pos- By a PPP Con- No answer / ing fiscal instruments sibilities exist, tract to change that can be used to but are still the street lights fund local action for CC underutilized. using LED tech- including forms of coop- nology and the eration (public-private application of partnership, outsourc- energy efficiency ing). in buildings in municipality pos- session

23 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Questions Rosoman Demir Kapija Chashka Kavadarci Are municipal revenues No No, additional No No sufficient to ensure -in funds have to frastructure investments be provided so that basic municipal from donors and functions that influence grants CC can be performed? Is the municipal adminis- Municipal Do not know No tration in your commu- budgets for nity, especially the local addressing policymakers, aware of environmen- the responsibilities of the tal issues are Municipality in dealing extremely low. with CC, and to what The number of extent? people dealing with this issue is limited in municipalities. Are there any initiatives No, all partici- Very few No No of various stakeholders pants need to (local authorities, service be aware of providers, private busi- the importance ness sector, individual and possibility citizens / groups) to of implement- reduce emissions of ing initiatives greenhouse gases in the and of the Municipality? benefits from them.

24 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

2.2. Assessment of Capacity for Local Reports for Strategic Environment Assess- Action in the Area of Environmental ment had been prepared, but none of them Management evaluated the aspects of mitigation and adaptation to CC or whether climate sce- Most of the municipalities in both Planning narios and risks of CC had been taken into Regions have LEAPs.13 Through this plan- account in their elaboration of the Strategic ning document they can determine their Environment Assessment Report. municipal goals for local action in the area With the exception of the municipalities of of environment, describe and assess local Veles and Gevgelija,16 the municipalities in problems and risks, set priorities for solving both Planning Regions declared that they the most essential issues of management have no data on environment monitoring of various environmental media and areas because no local system for monitoring the and environmental goals, and establish environment has been set up for any envi- indicators and criteria for the evaluation of ronmental medium or area. The only data local environmental management policies. that municipalities have available and make The LEAP includes a description of primary use of is data on: stakeholders and actors responsible for -- Environmental emissions from the implementation of local priority meas- installations that are subjects to B ures, as well as the timeframe and budget Integrated Environmental Permits, of such measures. During the prepara- which can be used in the preparation tion of LEAPs, municipalities must comply of a local, regional or national Inventory with the NEAP and other regulations and of greenhouse gas emissions from B legal priorities. In the Southeast Planning industrial installations. Region, the municipalities14 with LEAPs es- -- Data on the type and volume of waste timated that the Local Environmental Action generated in the Municipality, which is Plan for the Municipality covers aspects of collected by Public Utility Companies. mitigation and adaptation to CC (air quality This data is submitted to the Municipal- management, drinking water and wastewa- ity, and the Municipality then submits it to ter management, waste management, soil the Ministry of Environment. This data on protection, forest protection). In the Vardar environment media and areas, together Planning Region, most municipalities with the data possessed by municipalities stated that their LEAPs are lacking or out- in the field of energy (records of energy dated.15 From the contents of these LEAPs, consumption in public buildings and public it is evident that scientifically-based climate lighting in the Municipality) and transport scenarios and risks of CC are not taken into (records of the number of vehicles in the account in the development of LEAPs and in the setting of priorities and measures. In 16 In the Municipality of Veles, there is a several cases, municipalities identified the developed local and national monitoring relevant regional and local papers on which network. The local network is run by the Centre for Public Health - Veles. The national monitoring network is run by the Ministry 13 LEAPs – Municipality of Veles; Municipality of Environment and Physical Planning. of Negotino; Municipality of Chaska; All monthly monitoring data arrives at the Municipality of Bosilovo; Novo Selo Municipality, whereupon the Municipality Municipality; Strumica Municipality; Sveti publishes it on its website and enables Nikole Municipality; Kavadarci Municipality; public accessibility and also performs an Gevgelija Municipality; Radovish Municipality. analysis thereof and proposes measures 14 Bosilovo Municipality; Novo Selo Municipality; to tackle pollution. In Kavadarci, there is a Strumica Municipality; Gevgelija Municipality; National Monitoring Network managed by Radovish Municipality. MEPP. Gevgelija Municipality, in its response 15 The Municipality of Veles specifies Local to Questionnaire 1, stated that it has an Agenda 21 as a relevant document for action established local Monitoring and Information in the field of environment. System regarding the environmental situation.

25 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Municipality) can significantly contribute 2.5. Assessment of Capacity for Local to the establishment of a comprehensive Action in the Area of Crisis Man- Inventory of greenhouse gas emissions at agement and Protection national level and to the greater accuracy of national projections. More than 60% of the municipalities in the Municipalities cited the problems they Southeast Planning Region that replied to faced as a result of CC (lack of drinking Questionnaire 2 have Acts for Assessing water, floods, droughts) and assessed that Hazards and Risks.18 These documents the plans for water supply (drinking water, contain developed scenarios, action plans irrigation) and drainage, and the plans and standard operating procedures for for collection, drainage and treatment of dealing with risks and hazards, including wastewater, as well as plans for handling annual plans for priority actions, strategies the adverse effects of waters, address and annual reports. Only two municipali- certain aspects of CC. They also stated ties (Bosilovo and Novo Selo) conducted that the level of CC awareness among utility practical activities for the prevention and service providers is low. management of disasters and accidents. In these municipalities, response teams are formed by a Decision of the Mayor, i.e. 2.3. Assessment of Capacity for Local under the control of the State Inspectorate Action in the Area of Energy Ef- for Protection and Rescue at the Directo- ficiency rate for Protection and Rescue. Munici- palities in the Southeast Planning Region Municipalities that have a three-year Plan identified the most frequent problems they for EE are almost unanimous in their as- faced in the prevention and management sessment that the CC aspects in the Munic- of disasters and accidents as being their ipal Three-year Plan for Energy Efficiency lack of material and technical resources are significant. As the Plan relates to the and financial resources, and also the lack of aspects of CC mitigation, i.e. the reduction coordination with the central government in of greenhouse gas emissions in the atmos- terms of their competencies over preven- phere, it would be logical for the model to tion, alarm systems, cleaning of drains, etc. be replicated in the regulatory model and Municipal budgets are a source of funds for this model to be applied to other sec- for preparatory and ongoing activities in tors where measures for the reduction of response to disasters and accidents, but greenhouse gas emissions should be taken all municipalities stated that such funds at local level. are not sufficient for this purpose. Another issue faced by municipalities in the South- 2.4. Assessment of Capacity for Local east Planning Region in their obligation to Action in the Area of Transport meet this responsibility is their lack of human resources and necessary knowledge Most municipalities in both Planning and skills to prevent and deal with disasters Regions have no documents relating to and accidents. Also, most municipalities transport and its impact on CC, but the is- have buildings, but not enough vehicles, sue is addressed in the framework of other material and technical resources and strategic documents17 of municipalities in equipment needed to deal with disasters this area. and accidents. Most municipalities have identified certain groups of citizens in their communities as most vulnerable in cases of disasters or accidents, and have plans 17 Urban plans and LEAPs. Kavadarci Municipality assessed that CC aspects in its transport planning documents are at a high 18 Novo Selo, Bosilovo, Strumica (in a level. preparation stage), Radovish and Bogdanci.

26 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions and procedures for response in the event Protection and Rescue at the Directorate of a disaster or accident. Municipalities for Protection and Rescue, the Centre for in this Region have developed a system Crisis Management and PE “Macedonian for informing citizens about measures for Forests”). They also emphasise the need the prevention of disasters, accidents and for greater coordination with the central catastrophes (using the media). government in order to intensify such coop- Municipalities in the Southeastern Planning eration. Control in terms of the prevention Region stated that there is good coop- and management of disasters and acci- eration between the entities in the crisis dents in municipalities is organized through management system (the municipality with cooperation among these authorities, local its entities, the Directorate for Protection response teams, the local population and and Rescue, the State Inspectorate for PE “Macedonian Forests”.

The situation in the Vardar Planning Region Response teams are formed by a Decision is similar. These municipalities have devel- of the Municipal Council. Here, also, the oped scenarios, action plans or standard most common problems are the lack of ma- operating procedures for dealing with risks terial and technical resources and funding; and hazards, including annual plans for pri- lack of human resources and necessary ority actions, strategies and annual reports. knowledge and skills to prevent and deal In some cases, practical activities have also with disasters and accidents. Municipal been carried out for the prevention and budgets are a source of funds for prepara- management of disasters and accidents. tory and ongoing activities in response to

27 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

disasters and accidents, but all municipali- (the municipality with its entities, the Direc- ties stated that such funds are not sufficient torate for Protection and Rescue, the State for this purpose. Most municipalities have Inspectorate for Protection and Rescue at identified certain groups of citizens in their the Directorate for Protection and Rescue, communities as being most vulnerable in the Centre for Crisis Management and PE cases of disasters or accidents, and have “Macedonian Forests”) and they point out plans and procedures for response in the the need for greater coordination with the event of a disaster or accident. Municipali- central government in order to intensify ties in the Vardar Planning Region have this cooperation. Control in terms of the developed a system for informing citizens prevention and management of disasters about measures for the prevention of disas- and accidents in municipalities is organized ters, accidents and catastrophes (through through cooperation among competent their municipal bodies, municipal newslet- state administration bodies, municipal ters and regular reports). Municipalities de- authorities, PE “Macedonian Forests”, the scribe the cooperation between the entities Ministry of Interior and the local population. in the crisis management system as good,

28 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Diagram 1. Integration of CC in urban plans of Vardar Planning Region Municipalities - aggregated indicators per Municipality

2.6 Assessment of Capacity for Local depending on the municipal administra- Action in the Area of Physical and tion’s capacity to incorporate climatology Urban Planning - Common Fea- impact data in its urban planning documen- 21 tures of the Vardar and Southeast tation. The actual situation shows that there are no explicit references to CC. In Planning Regions 100% of cases, the municipalities of both Planning Regions responded negatively to questions as to whether the topic of climate From the responses submitted by munici- change is directly integrated in the spa- palities to Questionnaire 1,19 it is evident tial and urban planning documents of the that plans at local level are not fully harmo- Municipality. nized and adopted for the entire planning coverage of municipalities. The legal gap in the Law on Physical and Urban Planning 21 For example, in the Municipalities of and the non-integration of the issue of CC Bogdanci, Konche and Strumica in the SPR mitigation and adaptation as an aspect of and the Municipality of Gradsko in the VPR, the issue is addressed through sectoral spatial and urban planning results in not 20 policies on the energy efficiency of buildings, addressing the issue in practice, i.e. only spatial and urban planning, transport addressing the issue on a voluntary basis, conditions, waste management, water management, protection and rescue; through energy passports for buildings; in Sveti Nikole 19 For more details, see the Inventory of Municipality, by managing media / areas of Planning Regions’ documents. the environment, spatial and urban planning, 20 For example, in the Municipality of Bosilovo transport and roads, land management, in the SPR, Negotino, Veles, Lozovo and forestry, and crisis management, and Rosoman in the VPR; exceptions are by the key priorities set out in the Local Kavadarci and Novo Selo. Environmental Action Plan of Sveti Nikole.

29 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Diagram 2. Integration of CC in the urban plans of the municipalities of the Southeast Plan- ning Region - aggregated indicators per Municipality

The issue of CC is partly and indirectly ad- Analysis of the responses suggests there is dressed in some local urban plans through very limited understanding of the linkages environmental sustainability and resilience between urban and spatial planning and and capacity to cope with disasters. In CC among local administrations. In most terms of the level of integration of urban cases, CC is understood as an environmen- plans with other municipal sectoral plans, tal rather than a crosscutting issue, thus it the majority of responses were negative is declared that urban plans approved by due to the non-alignment of plans with the the Municipality contain CC mitigation and existing infrastructure. adaptation measures in terms of a Strategic In view of the obstacles they face in the Plan. From the answers, one cannot draw a development of urban plans, municipali- clear conclusion about the frequency with ties say they have no financial capacity for which CC issues are involved in the process the expensive and inflexible urban plan- of urban planning in municipalities. One ning process provided under existing reason for this is the prevailing perception legal dynamics. As a result, not all plans of the CC concept, which can be illus- are adopted regarding the entire planning trated by the response “those are gener- coverage of municipalities, and some of ally indirect measures”, indicating that the them are outdated22 and not aligned.23 CC aspect is of secondary importance in the process and is incorporated into the broader context of issues. If this conclu- 22 Details in Appendix 1. sion is true, then there is a danger that the 23 When asked to assess the degree of CC aspect is not taken into account in the integration of urban planning with other municipal sector plans (such as those for spatial and urban planning process. Only in water and waste management or energy), Bosilovo, Konche and Strumica from SPR, Bogdanci said they were well aligned and and Gradsko, Sveti Nikole, Demir Kapija and Rosoman and Veles stated that only the new Lozovo from VPR declared non-alignment; planning documents were in compliance.

30 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions a limited number of cases24 are climatology Data for the municipalities in both Regions data and its scenarios used in spatial and is shown in Diagram 3 regarding the Vardar urban planning in the direction of mitigation Planning Region and Diagram 4 regarding and adaptation to climate change through the Southeast Planning Region, below. the SEA measure.25

Diagram 3. Integration of CC in the urban plans of municipalities in the Vardar Planning Region, shown by municipalities

Diagram 4. Integration of CC in the urban plans of municipalities in the Southeast Planning Region, shown by Municipalities

24 Lozovo. 25 For example, the Report on the Strategic Evaluation of the Study for Determination of VPR Potential to Use Renewable Energy Sources.

31 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Public participation is regulated by law, Of the indicators, the greatest impact on and the answers show that it is practiced CC at LGU level in the Vardar Planning Re- well. Only in a limited number of cases did gion is effectuated by the implementation municipalities not declare the existence of of the urban planning process and the issu- a participatory body in their physical and ance of building permits, at the expense of urban planning process.26 other indicators. (See Diagram 5.)

Diagram 5. Integration of CC in the urban plans of the municipalities of the Vardar Planning Region, shown by indicators

Unlike the Vardar Planning Region, the situ- is used as a measure for dealing with CC. ation in the Southeast Planning Region is (See Diagram 6) alarming. Only the degree of UP realization

Diagram 6. Integration of CC in the urban plans of municipalities in the Southeast Planning Region, shown by indicators

26 Veles and Gradsko in the VPR, and Bosilovo, Konche and Strumica in the SPR.

32 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

By combining the data obtained from and adapt to CC. The general conclu- Section 1 (general, horizontal issues) and sion is that, although municipalities have Section 5 (Physical and Urban Planning direct responsibility and capacity for urban Department) of Questionnaire 2, conclu- planning, still, this most suitable tool for sions can be reached about the obstacles the current level of municipal development and problems faced by municipalities in is not sufficiently used due to the above applying CC knowledge in their physical obstacles. The method of spatial and urban and urban planning process.27 Obstacles development is also a key indicator of CC. may be characterized as those of a tech- At the same time, CC makes urban popula- nical nature (lack of data and access), tions vulnerable to the effects of CC. The institutional obstacles (lack of staff, lack dominant spatial and urban planning prac- of knowledge) and strategic obstacles (no tices in these Planning Regions do not offer jurisdiction, lack of state policy). In most sufficient solutions to this dual challenge. cases, municipalities say they have no separate organizational unit responsible for the development and implementation of CC 2.7 Assessment of the Level of Good policies. Municipalities responded that they Governance lack staff with the capacity to coordinate, 2.7.1. Level of Effectiveness monitor and control the activities of so many different sectors involved in dealing One of the indicators of the Methodology with CC. Most municipalities cite the follow- for Assessment of Local Action for CC is ing obstacles to the integration of the CC whether municipalities have the capac- issue in their physical and urban planning ity and resources for proper planning and process: implementation of policies and forms of -- Insufficient capacity and expertise horizontal and vertical coordination. The amongst urban planners for the municipalities of the Southeast Planning application of knowledge about CC; Region declared ineffectiveness in their -- Insufficient knowledge of CC; planning and implementation of CC poli- -- Lack of adequate funding; cies. This is due to their unclear responsibilities for CC, the insufficient capacity -- Lack of jurisdiction over matters which affect the level of greenhouse gas and education of their staff, the absence of emissions in the atmosphere; interdepartmental cooperation within local administration, poor coordination with the -- Lack of support from central government central government authorities, and limited in the form of technical support, human and financial resources for local action human and financial resources. on CC; Coordination with public companies on -- Lack of incentives to support local action matters related to this area is at a satisfac- for CC; tory level. The same applies to inter-mu- -- Lack of fiscal instruments to finance local nicipal coordination. In the Vardar Planning action for CC; Region, the capacity and resources for -- Insufficient budgetary funds in the proper planning and implementation of Municipal Budget to perform basic policies are at a low level. Among the rea- municipal functions and infrastructure sons cited are the lack of equipment and investments. information on CC, insufficient vertical -co In several cases, the obstacle cited was the ordination at both local and regional levels, lack of initiatives by the private sector for lack of human resources qualified for the action to reduce greenhouse gas emissions operational matters which the Municipality has been assigned, and lack of planning documents.28 27 They are given consecutively in the text and the explanation thereof does not present any ranking of the frequency and dynamics of the occurrence of obstacles. 28 Chashka.

33 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

2.7.2. Level of Participation Municipalities identified the categories of the population most vulnerable to the impact of Municipalities are indirectly consulted in mak- CC, including: marginalized groups or minori- ing national sectoral policies, mainly through ties, i.e. people living in neighbourhoods with ZELS networks. According to the responses in substandard conditions, mothers, infants and the Questionnaires, there was no civil society toddlers, the young population, the population activity observed in the sector of CC preven- in rural areas with difficult access to health ser- tion. Some initiatives by NGOs exist, but these vices, the elderly, and people with health prob- are mainly for project activities that partially lems. Municipalities declared that measures solve certain problems related to environmen- for the mitigation of risks to these categories tal aspects. Municipalities have no estab- are foreseen in the plans for protection and lished mechanisms by which to ensure the rescue and consist of measures for the mitiga- participation of civil society in the process of tion of disaster risks and the giving of priority to decision-making and policy-making relevant to accommodation in the event of a disaster. CC. Most municipalities stated that no regular public opinion polls were held. However, one municipality stated that regular surveys 2.7.4. Transparency and Accountability are conducted before, during and after the All official data and information related to CC, preparation of planning and policy documents greenhouse gas emissions and disaster man- related to the environment, climate change agement that is available to municipalities (and and service delivery. This municipality consults to the public) is published under the general public opinion through conducting surveys and framework for access to information of public questionnaires and holding open public hear- character. In municipalities located in areas ings on these topics, using the results in the most directly affected by the negative effects prioritization of problems, values and needs.29 of CC, information on possible scenarios and the harmful effects of CC is provided continu- 2.7.3. Level of Equality and Non- ously (see Diagram 7 below). Other municipali- discrimination ties report through a body / headquarters for protection and rescue, i.e. publish or commu- All stakeholders in municipalities have an equal nicate reports to local communities that refer right to participate in the decision-making to the chemical and bacteriological safety of process. drinking water. Regarding the publication of data, municipalities have established cooperation with the media. Diagram 7. Level of information communicated to citizens about measures for the prevention of disasters and accidents, aggregated for all municipalities from the SPR and the VPR

29 Bogdanci. 34 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

V. Results, Conclusions 2. Southeast Planning Region and Recommendations Workshop The Southeast Planning Region Workshop of the Workshops was held on November 7, 2013 (Thursday) at the Army Hall (Advisory Hall) in Strumica, 1. Vardar Planning Region starting at 12:00 am. The purpose of the Workshop was to present the initial find- Workshop ings of the Survey ‘Assessment of Local The Vardar Planning Region Workshop was Management for the Prevention of the held on October 24, 2013 (Thursday), at the Adverse Effects of Climate Change’. The Hotel “MONTENEGRO” in Veles, starting Workshop was attended by representatives at 11:00 am. The purpose of the Workshop of the relevant stakeholders in the Plan- was to present the initial findings of the ning Region, municipalities and their utility Survey ‘Assessment of Local Management companies, regional offices of the MEPP for the Prevention of the Adverse Effects in Strumica and Gevgelija, regional offices of Climate Change’. The Workshop was of the Ministry of Agriculture, Forestry and attended by representatives of the Planning Water Economy in Strumica, Gevgelija, Region, municipalities, institutions with Valandovo and Radovish, farmers and their responsibilities related to environmental associations, and other stakeholders with protection, utilities, urban planning and the responsibilities related to environment pro- protection of citizens and goods, NGOs tection, utility services, urban planning and from the Planning Region and the team of the protection of citizens and goods, the UNDP experts that conducted the research. NGO sector from the Planning Region and Representatives of all VPR stakeholders the team of UNDP experts that conducted familiarized themselves with the preliminary the research. findings of the Survey and validated them Representatives of all SPR stakeholders through a review and discussion during the familiarized themselves with the preliminary Workshop. findings of the Survey and validated them The purpose of the Workshop was to gather through a review and discussion during the additional data on the preparation of public Workshop. policies (at the level of Local Government The purpose of the Workshop was to gather Units and Planning Regions) for the preven- additional data on the preparation of public tion of negative climate change effects and policies (at the level of Local Govern- to present the Draft Report on the Survey ment Units and Planning Regions) for the and confirm the findings contained therein. prevention of the negative effects of climate During the Workshop, local experts hired change and to present the Draft Report on by UNDP presented their Draft Reports the Survey and confirm the findings con- regarding the following: tained therein. During the Workshop, local -- Survey ‘Assessment of Local experts hired by UNDP presented their Management for Prevention of the Draft Reports regarding the following: Adverse Effects of Climate Change’; -- Survey ‘Assessment of Local -- Analysis to assess the vulnerability of Management for Prevention of the agriculture (vineyards) in the Vardar Adverse Effects of Climate Change’; Planning Region; and -- Analysis to assess the vulnerability of -- Economic Feasibility Analysis regarding agriculture (vineyards) in the Southeast the proposed modelled scenarios of Planning Region; and climate change in viticulture. -- Economic Feasibility Analysis regarding The Workshop confirmed the findings aris- the proposed modelled scenarios of ing from the Survey conducted by using the climate change in viticulture. Questionnaire Method, and it was con- The Workshop confirmed the findings aris- cluded that they could be used for the Final ing from the Survey conducted by using the Report. Questionnaire Method.

35 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

The representative of the NGO “Mileukon- takt - Macedonia” intervened by saying that VI. Strategic Concept – the data on Bogdanci Municipality con- The Role of Physical and tained in the responses to the Question- naires does not reflect the current situation Urban Planning for Good regarding the way in which the municipality CC Management deals with climate change. It was pointed out that under the USAID Project for the Spatial and urban planning aims to en- Preparation of Municipal Strategies on Cli- sure the sustainable development of local mate Change, activities were aimed at pre- communities and sustainable spatial paring the municipalities to better address development. It is municipalities that are the challenges caused by climate change, most directly affected by CC, and therefore with a special focus on improving local adaptation at local level is a priority. Physi- democratic processes and increasing mu- cal and urban planning can help regulate nicipal capacity to adapt to climate change. important aspects of CC management. It The Project is implemented by “Mileukon- covers the legally established mechanisms takt - Macedonia”. Project activities are for planning the use of space, the spatial carried out to develop municipal strategies arrangement of structures in economic for climate change in four municipalities in and non-economic sectors, the network the territory of the Republic of Macedonia, of settlements, the spatial distribution of including the Municipality of Bogdanci be- roads and other infrastructure, a strategic longing to the Southeast Planning Region assessment of environmental impacts, is also covered. It was pointed out that the guidelines and measures for the protection Project Goal was to strengthen the capac- and improvement of environment and na- ity of civil society and raise the level of local ture, measures for protection from natural climate change management. The Project and technological disasters and accidents, has three components: parameters for implementation of the Plan, -- The Green Agenda - which aims and appropriate graphics. to involve stakeholders through a A number of extreme natural events in participatory process designed to recent years, especially in the Southeast develop strategies and action plans to Planning Region, and their dramatic impact address adaptation to climate change on urban infrastructure, economic activ- and reduce the negative effects of CC, based on a consensus; ity and public health in areas prone to risk, illustrate the urgency of reducing risk -- Pilot Projects / emergency actions - through practices for better spatial and planning and implementation of Pilot urban planning. Spatial and urban planning Projects and emergency actions that will enhance the level of stakeholders’ has the potential to reduce vulnerability to adaptation and mitigate the effects of the effects of CC such as floods and land- climate change; and slides, and to allow flexibility in the develop- -- Capacity-building, which implies ment and use of space for the purpose of strengthening stakeholders’ skills dealing with the effects of CC. Therefore, and knowledge necessary to increase this Report provides suggestions on: resilience to climate change and -- How improved physical and urban enhance their ability to engage in the planning can contribute to mitigating process. and adapting to CC; and The Project is in its final stage in terms of -- How to improve the process of spatial the preparation of Municipal Strategies on and urban planning in the Republic of Climate Change for Bogdanci Municipality, Macedonia in order to provide good and this must be taken into account when governance in terms of CC at both preparing the Final Report on Capacity As- central and local levels. sessment within the UNDP Project.

36 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

The Report on Assessment of Management cooling and heating systems and regulation of Local Action for Climate Change (UNDP, of the use of fossil fuels, the introduction December 2012) emphasises that spatial of vertical housing structures, and efficient and urban planning has an impact on CC recycling of solid waste. mitigation (e.g. the method of settlement New planning practices can help integrate planning determines the ecological footprint CC into the process of urban develop- and the level of greenhouse gas emissions ment planning. These practices are based from settlements) and on adaptation to CC on a more integrated approach to spatial (e.g. planning will affect the resilience of the planning, infrastructural development and settlement to the effects of CC). The same activities to facilitate economic growth, as Report states the conclusion that there well as their adaptation to help mitigate are no legal provisions in domestic legisla- and adapt to CC. Integrated access means tion that oblige municipalities and other planning equally addressing impacts in actors to take CC issues into account in terms of vulnerability to CC and their adap- their preparation of spatial and urban plans. tation, and the reduction of greenhouse gas The Report concludes that there is little emissions in the atmosphere. evidence of the integration of these spatial At international level, there is a consensus and urban plans with other sectoral plans that the respective approaches of spatial (water, waste and energy). This consti- and urban planning and urban development tutes a legal and institutional gap. models are key to mitigating and adapting A detailed evaluation of urban planing and to CC, especially at local government level. how it contributes to mitigating and adapt- For example, the design and functionality of ing to CC was performed during Phase II as settlements can either increase or reduce a separate activity that resulted in the Stra- the demand for energy and can affect the tegic Concept on the Role of Physical and way energy is produced, distributed and Urban Planning in Good Climate Change used. Some analyses indicate that spatial Management. The entire document is an- and urban planning, use of green infra- nexed to this Report. This Chapter provides structure30 e proper organization of human a summary of the Strategic Concept.

30 Green infrastructure is a decision- making approach to spatial planning and 1. Using Both Spatial and Urban development that emphasizes the importance of preservation and which uses the natural Planning to Deal with Climate environment to solve urban and climatic Change challenges. The main features of this approach are the application of the concept Interest in the potential role of spatial and of space versatility at local level through urban planning in managing CC is raised as proper planning and space management an issue because of the impact that rapid using natural systems for proper captures urbanization has on CC. Spatial develop- of storm water and treatment of polluted ment and the functions of settlements can water, adaptation to climate change and increase or reduce energy demand, as well the impact of heat waves, preservation of as the volume of energy production, dis- biodiversity, food production, ambient air quality, sustainable energy use, clean water tribution and use. Mechanisms of physical and healthy soils, and the provision of more and urban planning and spatial develop- space for human functions such as improving ment can respond to factors affecting the quality of life through recreation facilities anthropogenic emissions of greenhouse and providing shade and shelters in and gases in the atmosphere (e.g., increases around cities and townships. The application in economic activity, population growth). of green infrastructure plays a significant Additional savings in carbon dioxide emis- role in tackling climate change by protection sions resulting from energy use are pos- against floods and other adverse effects of CC. For example, flooded plains can help to sible through the introduction of regional mitigate flooding with their natural capacity

37 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

activities in compact communities and the and addressing vulnerability to the impacts localization of manufacturing processes31 of CC.33 Urban infrastructure and hous- can significantly affect in reduction emis- ing facilities should be planned taking into sions of greenhouse gases in the atmos- account the local impact of CC (for exam- phere, and the sensitivity and the capacity ple, the need for the adaptation of locally of local communities to adapt. important sectors and resources for the purpose of limiting the negative effects of CC at local level). Since CC is explicitly re- 2. Spatial and Urban Planning lated to future sensitivity , the current state Capacity for Adaptation to CC of spatial development is taken as a bench- mark for measuring sensitivity. Sensitivity, in its existing and potential future state, Spatial and urban planning is relevant for should be the deciding factor for the adop- local adaptation32 to CC and for assessing tion of a Decision on Space Development. The vulnerability of municipalities to CC depends on the state of the urban infrastruc- to acceptwater and its gradual discharge ture, types of economic activity and the way back into the waterways. Forests act as in which public services are delivered. The natural sinks, absorbents of CO2 and prevent soil erosion. Wetlands absorb pollutants. structure and density of population are the Therefore, the use of free green infrastructure key prerequisites for urban infrastructure in mitigating the negative impacts of planning, land use and public transport climate change through natural capacities policy in tackling CC. Adaptive capacity as is economically more feasible because a component of spatial and urban planning the maintenance of the natural absorption should be taken into account to reduce vul- capacity is more effective and cheaper than nerability at local level. Adaptation is a local the use of expensive artificial technological solutions. (For more details about this priority because vulnerability at local level concept, see: Green Infrastructure, European tends to be higher. For proper local level Commission, 2010.) adaptation through spatial and urban plans, 31 For example, the proximity of residences municipalities in the Planning Region need to workplaces, transit and commercial to create maps of “risky and vulner- services, as well as the configuration of the able areas” and to envisage adaptation road network between these destinations, measures. Such maps are a tool to display all directly affect the choice of vehicles and information about hazards, vulnerability routes, i.e. potentially allowing for a reduction in the number of vehicles and travel distance. and risks of local communities in the larger 32 Adaptation of natural or human systems Planning Region, and they also support the in response to actual or expected climatic risk assessment and management process stimuli or their effects in order to mitigate at national level. They are useful for setting damage or harm and to exploit the beneficial priorities in planning space in local com- opportunities. A distinction is made between munities. Mapping of risks and vulnerability different types of adaptation, as follows: is also used for land planning and use, but anticipatory or proactive adaptation, which it requires the use of modern GIS technolo- is made before one feels the effects of climate change; autonomous or spontaneous adaptation - which is not a conscious (1995). response to climatic stimuli but is triggered 33 Vulnerability is the degree to which the by changes in the environment and natural system is susceptible to, and cannot cope systems and by the market and welfare with, the adverse effects of climate change, changes in human systems; and planned including climate variability and extremes. adaptation, which is a result of a deliberate Vulnerability is a function of the nature, extent policy decision based on the notion that and rate of climate change and variation to conditions have changed or will change and which the system is exposed, its sensitivity, that action is needed to restore, maintain, and its adaptive capacity. Glossary, or achieve a desired state. Glossary, Intergovernmental Panel on Climate Change Intergovernmental Panel on Climate Change (1995).

38 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions gies that include societal, economic, and process aimed at adaptation to CC. 34 social variables in GIS models. The basic Under the Law on Crisis Management, data for the preparation of a vulnerability Local Government Units shall, within their map should be adequate for deciding which jurisdictions established by law, and for places should take measures of prevention the purpose of their needs, the effective and risk reduction. Local governments can prevention and early warning of potential undertake activities to locate the facilities crisis situations, assess risks and dangers and the population of the local area at risk at local level, establish their needs and plan of natural or human disasters for which a their resources. Among other things, they vulnerability map should be drafted. Local, must assess risk threats and the danger of spatial and demographic data is relevant to crises occurring in their area. Based on the the process of planning and crisis manage- Law on Crisis Management and the Decree ment. For example, precise data on the regarding the Methodology for the Prepa- prevalence of buildings in the settlement ration of Assessments of Threats to the provides accurate identification about Security of the Republic of Macedonia by potential damage to and losses of buildings All Risks and Hazards, a National Assess- in residential areas; data on the number of ment will be adopted that will apply to the people in residential buildings is an indica- entire territory of the Republic Macedo- tion of possible victims and the extent of nia. It will be adopted for the purpose of disaster in the event of flooding. Besides planned, timely, meaningful and coordinat- data on inhabited areas, municipalities can ed decision-making, giving guidance and also collect relevant data on commercial recommendations for taking preventative and industrial areas. Thus, urban plan- measures and optimal crisis management. ners through their local urban planning can Interdependence between spatial and compare the flooded zones and coastal urban planning and measures for adapta- stability zones with these maps to deter- tion to climate change can be illustrated mine which real estate and buildings are at as follows: planning documents for spatial risk. These would represent an additional development should be tailored to meet tool in the local spatial and urban planning increased levels of water flows due to rainfall and meteorological impacts and the 34 According to the Guidelines for the vulnerability of urban infrastructure related Assessment and Mapping of Risks in Crisis to the impact of hydrological changes and Management, adopted by the European insufficient drainage capacity of the infra- Commission as of 21 December 2010, structure, sewage and water treatment. Number SEC (2010) 1626, the European Furthermore, the rising level of water flows, Commission recommends that Member coupled with the increased frequency States adopt a gradual approach regarding the development of risk maps. As a first of bad weather, can cause problems in step, a preparation of maps that show sanitary protection in case of the inability the distribution of expected major space of local urban infrastructures to capture hazards is proposed. These should be a sudden influx of water. The quality and accompanied by maps that show the spatial safety of drinking or recreational water may distribution of all relevant elements that need deteriorate as a result of the discharge to be protected (population, infrastructure, of sewage effluents and microbiological protected natural areas) and special maps or chemical agents and bio toxins. The for different subjects of protection. The third proposed series of maps should show the planning documents should also adapt the spatial distribution of vulnerability in terms of space to higher temperatures and more susceptibility to harm of all, and especially frequent droughts. Droughts cause an relevant subjects of protection. These maps increased risk of fire and this is a sufficient are the basis for the preparation of risk maps reason enough for planning documents to that provide an overview of the combination of take into account the surroundings of set- probability and impact of certain events. tlements in terms of fire risks, Fast-burning

39 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

dry areas with low vegetation, etc. Extreme it must be taken into account in the weather conditions increase the demand preparation of spatial and urban plans.36 for household and industrial water and This capacity is, however, neutralized energy in inhabited areas, and reduce the by the inability / lack of jurisdiction of level of available resources. CC affects the the bodies for spatial and urban plan- performance of commercial activities in ning to assess the pace and extent of Local Government Units, (i.e. the Planning extreme events. For consistent vulner- Regions) and therefore planning docu- ability assessment, the data on the pace ments need to adapt the space in which and extent of extreme events should economic activities are carried out. In this be used in cooperation with specialized context, it is required to assess the capacity bodies that have direct responsibility and vulnerability of existing infrastructure to collect, store and distribute data for through the mechanisms of spatial and climate projection. 35 urban planning to better plan for how - Ability to assess the impact of the existing systems can be adapted to changes in land use on CC. Such respond to the effects of CC. This informa- an assessment can be integrated into tion is also crucial for making decisions on appropriate investment options. 36 The main principles of the national SEA New practices entail transparency in spatial procedure are laid down in the Law on planning and urban development and a Environment (Chapter X, Articles 65–75). need to raise public awareness of potential Strategic Environment Assessment is disasters associated with CC. One of the implemented for strategies, plans and programmes (strategic documents) benefits of comprehensive spatial planning prepared by state institutions and local is the integration of different aspects that governments, which could have an impact on affect CC. Spatial and urban planning has the environment and human life and health. the potential to address several aspects The criteria for the necessity of preparing an relevant to CC adaptation, as follows: SEA Report for certain strategic documents - Capacity to assess the long-term are regulated by secondary legislation such as the Decree on strategies, plans and consequences, i.e. the impact of CC programmes, including amendments to such on the environment and human life strategies, plans and programmes for which and health. This capacity is based on the procedure for assessment of their impact the strategic impact assessment and on the environment and human life and health must be implemented (Official Gazette 153 / 2007) and the Decree on the criteria based 35 Coastlines, lakes, rivers, canals, forests, on which decisions are made on whether wetlands, special ecosystems (e.g., certain planning documents could have a spawning grounds), reserves of endangered significant impact on the environment and species, environmentally sensitive areas, human health (Official Gazette 144/2007). national parks and natural resources, railway The institution that prepares the strategic stations, roads, highways, short paved document also prepares the Strategic roads, macadam roads, dams, drainage and Environment Assessment Report, which control systems, sewers, bridges, ports, is part of the strategic document. Before airport terminals, water supply systems, the SEA Report is prepared, a procedure sourcing systems for waste-water treatment, for determining the scope of the Report hospitals and medical centres, educational should be implemented by the institution / centres, retirement homes, public places, authority preparing the planning document. theatres, sports stadiums, recreational The content of the SEA Report is prescribed areas, agricultural areas, exploitation forests, by a Decree for the Content of the Strategic industrial zones, shopping centres, hotels, Environment Assessment Report (Official residential areas, fire brigades and rescue Gazette 153/2007). The strategic document, services, emergency areas, depots of including the SEA Report, is open to supplies needed for emergencies, cultural comments from the public and other state institutions and archaeological sites, public and private institutions. institutions (state or municipal departments).

40 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

a strategic environment assessment 3. Spatial and Urban Planning which is mandatory for any spatial or Capacity for CC Mitigation urban plan / documentation. Based on the assessment of the impact of CC, - Reduction of Greenhouse spatial and urban planning can intro- Gas Emissions into the duce flexibility in responding to CC. The Atmosphere concept of flexibility is consistent with the existing principles of spatial and Sustainable spatial and urban planning de- urban planning and can easily be inte- velopment is based on planning in several grated into the planning process. core sectors: transport, housing, industrial production and energy, economic activity, - Capacity to perform planning of land transformation and poverty reduction. space development adaptable to At the same time, these sectors are also CC and to avoid solutions that have no the main sources generating and emitting adaptive capacity. This is the focus of greenhouse gases and thus contributing to future development planning. However, CC. While at the international community the capacity of Spatial and Urban Plan- level, negotiations are underway regard- ning to adapt existing spatial structures ing the common goals of nation-states (settlements, infrastructure) is prob- in the fight against global warming, the lematic, particularly in terms of costs. focus of municipalities is on initiatives to Municipalities can intervene in the reduce local greenhouse gas emissions, reconstruction of facades and roofs of particularly by limiting energy use. Munici- private buildings for collective housing, palities are centres of economic activity especially in terms of energy efficiency, and technological, social and institutional but reallocation would cause unreason- innovation, all of which are essential to able costs. their competitiveness at regional, national - Capacity to adapt land use in ac- and international levels. The concentration cordance with the degree of vulner- of population and economic activity helps ability, and to exclude areas which are urban areas to play a significant role in ef- prone to accidents and disasters and forts to reduce greenhouse gas emissions. to provide for reallocation / withdrawal Changes in space development can lead from vulnerable zones. This capac- to a reduction in the level of greenhouse ity is possible, but not always effective gases in the atmosphere. The tendency is and financially justified for the existing to concentrate industry in municipalities. settlements because it is related to the The growth and development of municipali- regime of property rights and is often ties is integrally linked with the availability associated with high financial resources of energy and the demand for fossil fuels, for the relocation of settlements and which further contribute to emissions of vulnerable areas. greenhouse gases. Reducing greenhouse gas emissions will help to alleviate many local environment issues that affect the health and welfare of the population, such as air pollution, acid rain, the pollution of soils, the cycle of production and the consumption of food. Given the two-way relationship between CC and spatial and urban development, and according to their distribution of responsibilities, municipalities and regions have key responsibilities in creating strategies to mitigate CC. One way in which municipalities can have a positive influence is to set local targets

41 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

for reducing greenhouse gas emis- 4. Legislative Framework in sions. Such initiatives often depend on the the Republic of Macedonia objectives set by central government and the possibility of joint efforts between Local - Assessment of the Level Government Units, and partnerships of of Good CC Management local government with local stakeholders, through Physical and Urban especially with the private sector. Within their competencies, they may influence: Planning the implementation of building standards in The Law on Spatial and Urban Planning the process of obtaining building permits; does not address the issue of CC. The ba- programmes for using the production and sic spatial planning platform at central level distribution of energy and energy effi- is the preparation of the Spatial Plan of the ciency; the regulation of public transport; Republic of Macedonia, which is adopted control of industrial processes; waste and by the Assembly of the Republic of Mace- water management; land planning and use; donia and is elaborated on the basis of hier- the stimulation of energy production from archically lower spatial planning documents renewable resources; the management of (Spatial Plan of a Region and Spatial Plan of forests and protected areas, etc. an Area of Special Interest for the Country). Spatial and urban planning can intro- The process is managed by the Ministry of duce incentives for the use of sustainable Environment and Physical Planning and the technologies and practices, education and Agency for Spatial Planning. At local level, training on CC, research and the introduc- the following are adopted: General Urban tion of new technologies that can reduce Plans - GUP (for the City of Skopje and the the level of emissions in the atmosphere as municipalities where municipal seats are a result of anthropogenic impact. To meet located); Detailed Urban plans - DUP (for the challenge of CC mitigation, a model for a planning coverage for which a General spatial and urban development should be Urban Plan is adopted); Village Urban developed which has the capacity : Plans - VUP (for settlements in municipali- - to perform comprehensive planning of ties of a rural character); Non-Settled Area spatial development taking into ac- Urban Plans - NAUP (for planning cover- count the contribution of anthropogenic age of municipal areas that are not covered emissions into the atmosphere from all by General Urban Plans and Village Urban relevant sectors; Plans, as applicable); Architectural and Urban Designs; and Urban Projects (for the - to be based on the physical reality of development of urban space structures urban spaces, at the same time ensur- up to the level of preliminary design, which ing a precise description of the conse- are outside the urban planning coverage of quences of future spatial development; Urban Plans). In order to consider the plan- - to respond to decisions linked to GHG ning opportunities for spatial planning, i.e. emissions, the preparation of urban plans except for a - to be designed for supporting the cli- Detailed Urban Plan, the bearer of the plan mate change mitigation policy, shall require conditions for spatial planning. GUPs, VUPs and NAUPs shall be adopted - to offer alternative scenarios. on the basis of conditions for spatial planning which will be issued pursuant to the Spatial Plan of the country. The process of preparation of the National Spatial Plan is centralized and municipalities have no discretionary rights to set local development priorities, though they may establish such priorities in their local plans

42 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions while ensuring consistency with the objectives of the Spatial Plan of the Republic of VII. Conclusions and Macedonia. Local urban plans are adopted Recommendations in 2 stages: Draft and Plan Proposal. Drafts are subject to an expert review. The process for the adoption of local urban plans 1. Mandate to Plan and is managed by municipalities / the City of Skopje. According to the legal framework, Implement CC Policy the process is financed from the budgets Municipalities in both Planning Regions of the municipalities / the City of Skopje. face several obstacles in establishing CC Local Government Units perform their policy priorities. responsibilities through an organizational The first group of obstacles comprises legal unit in charge of urban planning based obstacles that include the lack of municipal on a Programme that sets the boundaries jurisdiction for taking local action to tackle and contents of the planning district. The CC. In some areas, LGUs do not have full Programme is adopted by the Municipal decision-making power, while in others Council. The funds for its implementation they have no jurisdiction at all. Municipali- are approved in the Budget of LGUs. The ties of both Planning Regions share the legal framework provides for the principle problem that none of them has a local plan of transparency in the process of adopting for climate change. This is because the and implementing the plans. Supervision legislation of the Republic of Macedonia over the transparency of the work of local does not grant municipalities (or forms of governments, especially in terms of regular, their cooperation) the authority to adopt timely and full communication of informa- local / regional planning documents dedi- tion to the citizens is the responsibility of cated solely to CC. Nevertheless, the legal the Ministry of Environment and Physical framework does not set any limitations on Planning. To provide expertise and trans- such local action. Since the issue of CC is parency in the process of spatial and urban a matter of public interest and of both na- planning, the Municipal Council forms a tional and local importance, municipalities participatory body that presents the views, may adopt a municipal strategy for mitigat- opinions and needs of citizens and legal ing and adapting to CC. This local strategy entities, monitors the planning process by or action plan should be in accordance with giving initiatives, guidance and suggestions the National CC Plan (3rd National Com- for the preparation of planning solutions re- munication). In this way, municipalities / garding the specific municipality. The par- Planning Regions will be able to influence ticipatory body consists of representatives from the Council, an expert from the municipal administration, prominent experts in of the Council of the European Union of 14 the field of urban planning, representatives March 2007 establishing an infrastructure of NGOs and citizens in the municipality. for spatial information in the European A Geographic Information System for the Community (INSPIRE). The purpose of establishing the NSDI is to facilitate Planning Regions has not been estab- access, exchange, use and distribution lished. However, as an overall development of standardized spatial data and services framework, it is planned to involve GIS in in an efficient, effective and coordinated the strategic document establishing the manner. NSDI establishes a technological, National Spatial Data Infrastructure (NSDI) legal and administrative framework for of the Republic of Macedonia.37 interdepartmental cooperation that supports e-government initiatives and enables the integration of spatial data from different 37 The Draft Law on the National Spatial Data sources into a single network. The NSDI Infrastructure was submitted for adoption organizational structure consists of: NSDI in April 2013. It transposes the 2007/2/EC Council, NSDI Committee and NSDI Working Directive of the European Parliament and Groups.

43 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

the determination of specific central level funding of development, maintenance and measures and activities concerning the operation of road infrastructure, taxation municipality in accordance with local inter- and other revenue sources. est in adaptation. The lack of municipal jurisdiction to assume Key priorities for local policy on CC should the role of a regulator cannot be consid- be defined in terms of local / regional ered appropriate for local mitigation of and adaptation in response to identified risks adaptation to CC. To facilitate the prepara- and local or regional vulnerabilities. The tion and implementation of local policies establishment of local priorities and prior- for CC, it is necessary to determine the ity measures depends on the timeframes areas where LGUs can impose rules. Since involved, which means that municipalities jurisdiction and scope of authority to adopt will have to give priority to those measures regulations depend on the municipality’s which, during the planning period of the mandate given to it by special laws, the is- Municipality, are most likely to influence sue should be reconsidered appropriately. the reduction of greenhouse gas emissions, i.e. to contribute to local adaptation to the negative effects of CC. When setting 2. Integration of Climate priorities, both municipalities and Plan- Change Issues ning Regions should prioritise policies at achieving the overall CC policy, which are Municipalities have no plans that directly cost-effective and can lead to the greatest focus on local action for mitigation of and reduction of emissions, risks and negative local adaptation to the adverse effects of effects. Through these processes, policy- CC. Sectoral planning and programming makers determine areas where actions can documents adopted at municipal level, lead to multiple benefits. which are also measures to deal with CC at local level, are characterized by a lack of Municipalities can also set criteria for focus on issues of mitigation / adaptation. determining priority measures to reduce greenhouse gas emissions (e.g., criteria for In fact, the planning and programming determining the timeline, benchmarks and documents for energy use and energy methods of resource allocation). As part of efficiency, local transportation, waste the planning process, municipalities within management, water management and the the Planning Region can develop measur- protection and rescue of people and goods able benchmarks by which progress in the have no direct reference to CC. Such local implementation of sectoral measures will action plans meet the legal obligations of be assessed. In order to adopt a Local Ac- sectoral laws, but neither take no care nor tion Plan on Climate Change, the prerequi- contain any measurable indicators of the site is to make an inventory of greenhouse extent to which they lead to a reduction in gases to identify the level of emissions from local emissions of greenhouse gases, or the sectors of energy, transport, industry, more importantly, the extent to which they land use and waste management, etc. are adequate to reduce local vulnerability and meet the needs of local adaptation to Lack of authority or proper competence is the adverse effects of CC. one of the main obstacles to the involvement of LGUs in the implementation of For example, in many municipalities there policies for mitigating and adapting to CC. is no integration of CC in urban plans. It is Local authorities have very few mecha- obvious that the issue of CC is treated as a nisms available, and even lack the power separate strategic issue that has no direct to influence the greenhouse gas emissions point of contact with other areas such as in their area, particularly the emissions of transportation, finance, education, zoning, the energy sector (the national electricity etc. If the goals related to climate change network development and maintenance), policy and the long-term risks of CC are fully integrated into the plans for urban de-

44 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions velopment, the prospects for effective local tation. The lack of attention to issues of action on CC will improve. Municipalities adaptation in local planning documents is should strive to achieve a better balance probably due to the fact that taking CC into between adaptation measures and mitiga- account requires a higher level of research, tion measures in their planning documents, which undoubtedly requires more funds to reduce the negative consequences of to be ensured in terms of the exclusive such measures and to better link the goals responsibility of local government budgets of spatial and urban development with delegated from the State Budget. This lack the CC measures that are not only related of attention may also be due to the fact to environmental improvement. In other that most issues of adaptation (e.g. river words, CC will have to be considered as an basin management planning) are not under integral part of spatial and urban planning municipal jurisdiction. The solution may policy (more on urban planning improve- consist in the integration of initial adapta- ment below). The same also applies to tion measures into planning documents other policies. For example, a necessary (for example through the integration of precondition for adopting any urban plan concerns about climate risks in the regu- that takes into account the issue of CC is lar process of investments planing in the the implementation of integrated policies municipality). for transportation and land use, since zoning and space use may intensify or limit the exposure and vulnerability of the population 3. Cooperation between and infrastructure to the growing threat Municipalities from the effects of CC. Most principles should be integrated in both policies, such Local strategies and action plans for miti- as multipurpose development, reducing the gating and adapting to CC may be subject need for transport, etc. to inter-municipal or regional cooperation. Inter-municipal Cooperation is a conveni- One possibility of overcoming this lack of ent solution for the smaller municipalities integration at the Planning Region level is that gravitate towards the larger municipali- to form a cross-sector coordinating body, ties of Negotino, Kavadarci and Veles in with the participation of all municipalities the Vardar Planning Region; and towards in the Region, that will ensure the integra- Strumica and Gevgelija in the Eastern Plan- tion of CC into sectoral policies, i.e. any ning Region. Generally, there are two basic urban development planning document activities where IMC may be established or urban documentation of the Region will so that the Planning Region municipalities be subject to assessment of its impact on become more efficient in setting and -im CC adaptation and mitigation. This would plementing their local priorities and locally ensure a structured systematic approach to adapted solutions for dealing with CC. CC policy implementation, using all the human resources available in the Region who А) The first activity involves cooperation in have the capacity to assess CC impact, making an inventory of greenhouse gas thus achieving a rationalization of costs. emissions from sources and sinks at regional level. The establishment of contrac- In the preparation of their planning docu- tual collaboration as a form of IMC in the ments, municipalities should take into Planning Regions, whereby one municipal- account climate scenarios and adequately ity performs work on behalf of one or more incorporate them into their sectoral local municipalities, is adequate for the process planning documents. The successful inte- of inventorying greenhouse gas emissions gration of CC issues in the local develop- for the implementation of regional CC miti- ment planning process depends on the gation activities. In this case, the contrac- integration of adaptation measures. In their tual cooperation for work performance will sectoral planning documents, municipali- relate to the establishment of measurable ties should emphasize the issue of adap- indicators to compare the progress in CC

45 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

mitigation across municipalities; the meth- the allocation of funds for each municipal- ods and reporting framework; the methods ity and stimulate the use of these funds for of progress assessment and performance reducing emissions. The ultimate goal of evaluation (such as before and after the inventory-taking is to help towards reduc- implementation of action plans); and the ing greenhouse gas emissions and thereby identification and dissemination of best improve environmental quality in municipal- practices for CC mitigation. There are sev- ities, as well as opening new employment eral reasons for harmonizing the methods opportunities. Finally, IMC for inventory- of inventorying local GHG emissions and taking of greenhouse gases will allow the sinks. IMC for inventory-taking of green- creation of measurable and verified data for house gases can result in better utilization the reduction of emissions (in accordance of human and material resources, as well with the Protocol for Emission Identification as savings / more effective utilization of based on the IPCC Methodology), and this municipal budgets. Specifically, any form of in turn will enable certain local / regional access to funding for efforts to deal with CC solutions for the mitigation of greenhouse requires harmonized methods of inventory- gas emissions to be adapted into adequate taking, reporting and database creation. solutions to be implemented with backing Regional inventory-taking will allow the from various funds, particularly interna- Planning Region municipalities to perform tional funds. temporal and territorial assessment of pro- The IMC Agreement for Inventory-taking gress in emission reductions and to com- in the Region should incorporate a system pare their outcomes and cost-effectiveness for monitoring emissions at the level of from reducing greenhouse gas emissions individual entities, which should also be a at municipal and Planning Region levels in system for the compilation of data and the several relevant sectors (energy, industry, estimation of emissions and their impact at agriculture, waste, and transport). Planning Region level, and for reporting on Cooperation on regional inventory-taking the entire Region and on individual munici- will enable comparison with other mu- palities in the Region. As a result, munici- nicipalities in the territory of the Republic palities can apply different approaches in Macedonia that have similar levels of ca- defining the sectors to be included in the pacity and similar economic, demographic, inventory-taking and in determining the geographical and climatic features. Such areas to be included in the official data comparison will help identify and under- inventory system. stand the sources of greenhouse gases B) The second activity involves collabora- and the ways in which they are emitted tion to create capacity for timely and effec- in the atmosphere. This opens new op- tive adaptation of the municipalities in the portunities for efficiency in terms of costs Region to the negative effects of CC. Mu- and resources for mitigation, as well as nicipalities from the Planning Regions may cooperation and transfer of knowledge. establish a joint administrative body as a Regional inventorying and reporting to the form of IMC in order to plan the adaptation central government is essential and will of all plans related to CC (especially urban allow the central government to make its plans). The future SPR Joint Administra- decisions on CC with greater accuracy, to tive Body can and should use vulnerability better assess the mitigation potential at analysis as a basis for planning regional / the level of Local Government Units, and municipal adaptation to CC and implement to make decisions that are regionally and the proposed measures for adaptation locally relevant. In the future, the regional of the Southeast Region in the sectors of inventory of greenhouse gases, which water resources, agriculture, health, and will contribute to the preparation of the crisis management38 developed within the National Inventory and Emission Targets, would be a database providing the basis for 38 On the vulnerability analysis and proposed national CC policy-makers to decide upon adaptation measures for the Southeast Region,

46 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Project ‘Third National Communication on tion about the sources and calculation of CC’. Also, a starting-point regarding work greenhouse gas emissions by Regions and on the form of inter-municipal cooperation LGUs, as well as expert assistance for the is provided by the scenarios for changes integration of CC in the planning docu- in temperature and precipitation on the ments, which will enable a platform for territory of the Republic of Macedonia by LGUs to prepare their local plans on CC. 2100, developed as a regular activity of the Otherwise, the existing obstacles to the im- Hydrometeorological Service. Later on, the plementation of local planning documents IMC experience in SPR should be trans- will remain. ferred and used for the future VPR Joint Besides financial support from the central Administrative Body. government, municipalities have many The establishment of IMC will achieve a other funds and mechanisms available.39 better utilization of human and material However, the central government will, at resources and savings and more effec- least in the initial phase, have to facilitate tive utilization of municipal budgets. In this the preparation of municipal projects ade- case, the planning documents relevant to quate for international financing and gradu- CC adaptation will incorporate actual needs ally strengthen the capacity of municipali- based on the adaptation of a specific mu- ties to raise implementation funds on their nicipality and/or Planning Region. own. Municipal activities and priorities for dealing with CC can also be supported by the private sector. For this reason, munici- 4. Resources palities should determine incentives that The process of decentralization is commit- will stimulate the private sector to support ted to strengthening the implementation the implementation of CC measures and capacity of municipalities. Most responsi- activities. bilities delegated to local authorities cannot Through the Planning Region Development be effectively implemented, however, be- Centre and the Council, initiatives can be cause municipalities lack sufficient financial taken that will establish IMC in the Region resources. This suggests that municipali- that will facilitate the implementation of ties cannot fully exercise their powers and pilot projects on energy protection, the responsibilities and that there is a need to organization of regional transport, regional create an effective system for financing CC knowledge and capacity-building for local action for climate change. If not, lack effective and efficient adaptation to CC, of funding resources could lead to munici- the development of a CC Strategy and the palities not integrating certain expensive establishment of regional priorities, techni- sectoral measures in their action plans (e.g. cal assistance, education and financial transport). incentives . Bearing in mind that local actions will have Rationalization of costs and resources to be financed from municipal budgets, and effective capacity utilization can be which according to the questionnaire achieved through inter-municipal coopera- responses is not sufficient even to imple- tion mechanisms. ment the original jurisdiction of municipalities, the central government will have to introduce stimulation measures to encourage this activity, or allocate funds from its Environment Investment Programme. Regarding the implementation of national 39 GEF, European Bank for Reconstruction and priorities at local level, the central govern- Development, forthcoming Horizon 2020, ment should provide financial support to IPA funds from the EU, European funds for local governments for their delegated pow- municipalities and towns, signatories of the ers and establish a database of informa- Convention of Mayors.

47 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

5. Good Governance and Local damages caused by CC, and stimulate an Action for CC informed public debate on CC issues. Further, the development of local policies There is a widely recognized need for the and plans typically involves the forma- involvement of local stakeholders, includ- tion of an expert body or commission or ing municipal authorities, local communi- other form of institutional cooperation (for ties, local representatives of civil society specific sectors - transport, energy, urban and the local business sector. Municipal planning, waste management, etc.). The bodies should establish cooperation with members of such bodies are typically de- stakeholders when making decisions in cision-makers, but also other stakeholders their inherent jurisdictions. The established who can assist in defining the current prior- practice of conducting public debates, ity measures and their implementation. The forums, public participation in meetings of goal is to present all interests concerned in the Council, participation in the work of the the planning document early on in the plan- bodies of municipal authorities should be ning stage in order to be able to agree upon focused on creating greater awareness not the objectives, the priority areas where only among the general public as a diffuse actions will be taken, the implementation mass, but also among a specific target measures and the evaluation mechanisms. group oriented to the message of handling The work of such bodies in the initial stage CC. In this way, local actors who have legal, of preparing a draft planning document economic or other concerns will learn why should be a process closed to the public. the municipal authorities should make Municipalities will, through such groups, decisions and use different or additional re- establish the practice of jointly diagnosing sources in their implementation of specific the issues on CC adaptation and mitigation sectoral measures for their settlements . by sectoral measures which would also be Participatory methodologies should ensure aimed at the formulation of future sectoral that the interests of all stakeholders are policies. taken into account when local CC poli- Such groups can also be formed through cies are elaborated. This can be ensured the application of inter-municipal coopera- through the application of one or more of tion mechanisms. In order to maximize the the mechanisms described below likelihood that planned sectoral measures First, the establishment of local / regional are adequate to local / regional conditions groups or thematic commissions mandated and risks affecting the local population, the to make recommendations to be consid- draft planning documents of sectoral work- ered by municipalities. The establishment ing groups need to be made available to of such forums will enable the engagement the interested public, industry, NGO sector, of individuals, groups, communities and academic and professional community, lo- the business sector to contribute to the cal people, etc. The involvement can be ar- formulation and implementation of sectoral ranged through workshops, lectures, public policies for reducing the emission of green- debates and presentations, or by ensuring house gases and adequate adaptation in written comments on the draft plans and the Region. These forums may include measures contained therein. the local expert community and busi- Local action for CC can be effective only ness sector in the promotion of business if parties that have no public and legal solutions that lead to CC mitigation and capacity (citizens, local NGOs and the busi- adaptation; the promotion of mechanisms ness sector) are included in the process for the protection of rights in procedures of policy formulation and implementation. before competent authorities as a tool Their role is to broaden public participation through which to clarify existing laws, limit in decision-making on issues that affect corporate behaviour, determine liability, the local population and tend to appear as provide opportunities for compensation for corrective instruments in the work on public

48 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions and legal entities, which will enhance and areas and careful use of natural resources) complement the work of central and local and adaptation (e.g. through the relocation authorities. of vulnerable neighbourhoods and commu- Expert groups can play a key role in the nities, improved water drainage and sewer identification of local emissions. The role of infrastructure for the purpose of protection civil society in local CC action is important against natural disasters related to CC, and in the phase of formulating the policies and other measures). setting local priorities for mitigation and adaptation, in the implementation phase of Current practices in the Republic of Mac- the CC policy, and in the dissemination of edonia shows that CC is seldom taken into data and knowledge to the general public. account in planning the development and Support from the business sector and the deployment of resources by national and general public in setting priority CC policies local policy-makers for spatial planning. is the basis for every CC plan. Such sup- The recommendations below are intended port can take the form of a positive public to indicate the possibilities for better spatial climate, providing support for the policy by and urban planning in response to CC and express public opinion or the absence of the benefits of developing a new approach overt opposition from key stakeholders and to spatial and urban planning. interest groups. In order to ensure participation, local authorities may use different models, starting from discussion on individ- Spatial and urban plans are adequate for ual projects to greater participation of the addressing CC issues. The results of the professional or general public. two questionnaires both qualitatively and quantitatively show that municipalities in Civil society may also have a significant role Planning Regions, compared in terms of in the dissemination of ideas and best prac- their capacity to develop other planning tices. Many of the solutions used by other documents, have the greatest capacity local governments can be disseminated for spatial development and planning. The and replicated on the territory of municipal- proposed solutions for overcoming the ities with similar social, economic, infra- identified barriers are illustrated in Chart 1 structural and climatic characteristics. Civil below. The main recommendation is for society organizations, including economic municipalities to use the presented role associations, can play a key role in the col- of local spatial and urban planning and lection and exchange of information on CC through it to predict their local actions for policy, its formulation and implementation. dealing with CC in the future. This recommendation is made on the basis of the 6. Urban Planning finding that the spatial and urban development planning documents, as well as the New methods of spatial and urban plan- landscaping documents, of the munici- ning can contribute both to mitigation (e.g., palities in the analysed Regions are more through the promotion of public transport, numerous, and at the same time prove the reduction of travel distances by arrang- capacity of municipalities to prepare such ing combined use of vehicles, improving planning documents. construction standards, increasing green

49 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Chart 1. Spatial and Urban Plans and CC - problems, proposed solutions

Institutional capacity building

The responses to the questionnaires show climatology data and which obstacles the points at which knowledge about CC prevent the flow of CC data, and the is used in the process of urban planning. impacts of CC on the Municipality; In the next stage, it would be advisable to - The methods and techniques for obtain- conduct research into whether, when and ing and using climatology data in urban to what extent the municipal administration planning; working on urban planning has knowledge - Which unit within the LGU can and of CC and uses it in the process of urban should use the data on climate change planning. This study will make it possible to in spatial and urban planning; identify the obstacles in the flow of information about climate change and the need for - The capacity of the municipal adminis- training to strengthen the administration’s tration to apply knowledge about CC in capacity to use knowledge of CC in spatial spatial and urban planning; and urban planning. The study will need to - The stage of the urban planning pro- determine the following: cess at which such data should be used - To what extent the findings about CC to establish CC influence on the final are relevant to urban planning concern- decision. ing climate phenomena at local and To enable local action to mitigate and adapt regional level; to climate change, local measures alone - To what extent LGUs have access to are not enough: action at central level is

50 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions also necessary. The central government - The establishment of municipal com- should incorporate the issue of dealing with petencies necessary to take additional CC in its strategic development planning measures complementary to national and spatial development in order to provide measures; a uniform local approach to tackling CC by - The development of a Programme for SUP. institutional and financial support and The central government should, through stimulation for using the mechanisms legal, administrative and fiscal measures, of spatial and urban planning in local define its own role and objectives in CC action for climate change; policy, particularly in terms of enabling local - The development of a tool for urban action, define the role of local government, planners that will enable a uniform ap- envisage measures for the stimulation of proach in the manner of including CC local action for climate change, and provide issues in the processes of spatial and solutions to potential obstacles. Legal urban planning; measures should be aimed at creating a le- - The identification of where and when cli- gal basis for treating the issue as a content mate information is used in the process of spatial and urban planning, but also for of spatial and urban planning; defining the manner, conditions and tools through which space will be developed and - Ensuring the coherence of relevant planned for the purpose of tackling CC. The policies and coordination to address main institutional approach to stimulating conflict situations in the priorities set local actions for climate change is the crea- for CC and other social, economic and tion of a central framework that enables environmental policies; local action. The central government needs - The establishment of a digitized spatial to find mechanisms to encourage and information system and a climatology enable municipalities to respond to CC by data system relevant to the model- adopting decisions regarding spatial and ling, projection and development of urban planning with long-term implications scenarios in the context of CC, and to for the municipality. In order for the new ensuring transparency and services to practices of urban planning and develop- stakeholders; ment to be effective, the central govern- - The creation of an evaluation mecha- ment should find a way to overcome the nism and performance indicators for municipalities’ problems of limited financial local spatial and urban plans in the capacity and limited human resources. The direction of mitigating and adapting to following actions will be necessary: CC. - The development of a public policy For a comprehensive response to CC, the and legal / institutional framework for spatial and urban planning policy should spatial development and landscaping be designed to achieve two main goals: that incorporates CC concerns and ena- reduction and adaptation to the irreparable bles central policies and priorities to be effects of CC. The strategic measures for transferred and detailed at local level; the integration of CC in spatial and urban - The adoption of regulations essential to planning policy should increase the benefits the encouragement of local action for for society as a whole. The mechanism will CC, giving the mandate and discretion have to ensure that the benefits of adapta- to LGUs to set local development priori- tion measures are greater than the costs of ties taking into account the local impact adaptation, i.e. the benefits also outweigh of CC, or to create a planning frame- the costs incurred if no adaptation meas- work in which municipalities can act ures are taken. because Municipal Councils adopt UPs in accordance with the Law on Spatial and Urban Planning;

51 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

* process of their adoption, which will * * raise awareness among local people about the effects of CC and ensure their In accordance with the mandate granted involvement in dealing with CC. to municipalities, local governments will need to apply new practices relevant to CC. Finally, planning should be based on con- In this regard, municipalities need to work sistent data and entail the integration of on developing the capacity of staff to apply available climatology data in the planning new methods of spatial and urban plan- process, so that the implications of CC can ning as part of their continuing professional be modelled and understood in the context education. In the development of local of spatial and urban planning, thus enabling spatial and urban planning documents, the new scenarios for local urban development. following aspects should be incorporated: In practice, according to the responses to - Spatial development and CC impact as- the two questionnaires, relevant data and sessed on the basis of local landscap- knowledge about the local impact of CC ing under existing climate conditions is not available to municipalities. Conse- and within the existing environment quently, a practice of sharing information situation; needs to be established in order to develop appropriate methods and procedures for - Spatial solutions should be adapted to the design of urban space. meet the changing climatic conditions and environmental situation as a result of projected climate change at local 7. Collaboration at National and level; Local Level - Land use and spatial and urban policies should be created to address the adverse effects of natural disasters; The establishment of a national strategic - Each municipality in the Planning framework and priorities to support local Region must evaluate its potential risks action for climate change is important and develop its space accordingly. CC because LGUs play an important role in re- data should be used in accordance ducing national greenhouse gas emissions with the specific climatic event in the and achieving the goals of adaptation. affected local area; Therefore, the central government should - Municipalities in the Planning Region find a way to set clear goals for the local should establish cooperation and a context and work together on the imple- shared agenda towards their adaptation mentation of sectoral policies at local and of regional space; regional levels, or it should create mechanisms that will enable the establishment of - Regional space adaptation should take local and regional priorities. This means into consideration the possible impact that a mechanism needs to be created on neighbouring municipalities with for gathering relevant information on which the Municipality has economic local priorities that will guide local ac- and social ties; tion for CC. - Municipalities in the Planning Region State administration bodies should should establish cooperation and a work with the bodies of LGUs in order shared agenda towards their com- to develop tools for developing capac- mon efforts to minimize anthropogenic ity, financial and human resources for emissions of greenhouse gases in the decision-making on CC issues of local atmosphere; importance. - Municipalities in the Planning Region Summary of Activities for Good CC Man- should provide greater transparency of agement their spatial and urban plans and the

52 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

Measures to ensure the principles of Jurisdiction good governance Primary Secondary Participation and strategic planning LGUs Planning Region; Central Government Establishment of a database of ana- Central Government LGUs; lytical data for planning Planning Region Provision of financial sustainability and Central Government LGUs; economic efficiency Planning Region Coherence of CC policy Central Government; LGUs; / Planning Region Equality, non-discrimination and Central Government; LGUs; / transparency Planning Region

53 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions Note / of proposals Preparation for training Depending on the Region and LGUs’ preferences - - - Indicator LGU’s job systematization act modified; CC staff in LGUs ensured con Training ducted; Skills among lo cal administra tion to integrate the issue of CC for Contracts IMC signed and operational To December 2014 December 2017 December 2014 From From December 2013 December 2014 December 2013 - - - - - Goals Establish ment of administrative structure Strengthen ing the ca pacity of the administrative to structure coordinate planning, implemen tation and evaluation of CC policies Establish ment of administrative structure Funding Local budget Environment Investment Programme; grants Local budget Timeline Timeline 1-3 yrs 1-3 yrs 1-3 yrs - - - - - Description Modification of the job systematiza tion act; Establishing a form of IMC a CC regarding evaluation forum on: CC Training plan integration; ning, preparation and implementa tion of CC plans; taking local action for CC; capacity for applying clima tology data in the planning sectoral process the legal Through mechanisms en visaged for IMC Jurisdiction LGUs/ IMC LGUs/ IMC LGUs/ IMC Type Short-term Short-term Short-term Tabular summary: conclusions Tabular General CC policy General Priority Identification of the CC unit responsible / staff the Strengthening capacity of LGUs / form of IMC Establishment of inter-municipal for cooperation adaptation to CC VIII. for common framework and priorities, VPR and SPR 1.

54 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions - - - Note take account of legal To mechanisms for partici pation, to link them with of processes sectoral spatial and urban plan ning and procedures for building permits; public participation on issues; environment water management; determine the planning CC is phase where taken into account; solutions to overcome obstacles in the flow of information government: Central technical sup providing port; support for CDM of introduction projects; fiscal instruments and incentive mechanisms - Indicator to Protocols partici ensure pation adopted Introduction of financial mechanisms in legislation and acts of LGUs To Ongoing Ongoing From From December 2014 December 2013 - - Goals Good man agement of local action for CC a Provide Mitigation and Adapta tion Fund Funding Local budget / RM Budget Environment Investment Programme; CDM; grants; funding options from international sources Timeline Timeline 1-3 yrs 1-5 yrs - - - Description Establish local / protocols regional partici to ensure pation; Review legislation partici to ensure pation determine To mechanisms for funding local ac tion for CC - - Jurisdiction LGUs/ IMC / gov Central ernment gov Central ernment / LGUs/ IMC Type Short-term Mid-term - Priority Establishment of a participatory decision-making mechanism Financial mecha nisms for financing CC activities

55 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions - - - Note government in Central with local collaboration governments; to discuss opportunities for a function of regulatory municipalities regarding mitigation and adapta tion (municipal buildings and building units - EE character and energy buildings; istics; green cooling / heating; waste disposal and emissions of methane; water management) regulation of land use - Legislation that would allow jurisdiction for GHG LGUs to reduce emissions regarding issues under their direct jurisdiction (space and land use and utilities) govern LGUs; central with ment in cooperation LGUs; a mechanism of data; as for transfer by the recommended COP UNFCCC - - Indicator Amendments to the SUP Law revised and adopted; amendments to the laws governing all key sectors (Environment, Construc tion, Industry, LSG) Transport, and reviewed adopted Introduction of a system for recording gas greenhouse emissions at lo cal and regional levels To Ongoing Ongoing - - From From December SUP; 2014- Crisis Man agement; SEA and LEAP; Law on Build ing; - LSG 2015 Law; inter- municipal cooperation; - Energy, 2016 Transport; other 2017- laws sectoral December – in 2014 phases - - Goals Formal integration of CC policy in sectoral policies of Accuracy data regard ing CC sce narios during planning Funding State budget State budget; local budget; grants Timeline Timeline 1-5 yrs 1-5 yrs - - - - - Description Revision of the Law on SUP; laws for sectoral of integration the CC issue and mechanisms for implementation; participatory methods; revision to determine the mandate for LGUs / regional level; mechanism for harmoniza tion of sectoral priorities under the influence of CC; appropriate of all regulation in key sectors; mecha troducing nisms to stimulate initiatives of civil society Mechanism for the collection and dissemination of local data from / environ area ment media monitoring; data on emissions from B installations; type and volume of waste; records con of energy sumption in local public buildings lighting; and street number and type of vehicles in the Municipality - Jurisdiction gov Central ernment / LGUs LGUs; IMC Type Mid-term Mid-term - Priority Identifying and filling the gaps for local action on climate change Establishment of a inven local / regional tory of GHG

56 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions Note Revision of sectoral planning documents in UP, terms of CC; (LEAPs, SEA, IPCC) government; Central to the COP according UNFCCC Methodology determine the most To 1–3 areas vulnerable risk maps and prepare for CC - - Indicator and Preparation adoption of a Local Plan to climate address change Methodology for assessment of local vulner ability adopted Local vulnerabil ity assessment performed To Ongoing December 2013 December 2018 From From December 2015 December 2013 December 2015 Goals Mitigation; adaptation Mitigation Mitigation Funding Environment Investment Programme; local budget; subsidies State budget; grants Environment Investment Programme; local budget Timeline Timeline 3-5 yrs 1-3 yrs 1-3 yrs - - - - - Description meas Concrete and activities ures level at the central concerning the Municipality in with accordance in local interest adaptation; Law on CC Unification of methods and for procedures assessment determine the To of the vulnerability local population and economic activity and infrastructure (as by sectors sessment of local and infrastructure adaptive capac ity in the case of events extreme trans (energy, port); need for adaptability in land use; assessment of the harmful ef at fects of waters local level - Jurisdiction LGUs; IMC gov Central ernment LGUs; IMC Type Mid-term Short-term Short-term - Priority Local Plan for Cli mate Change Methodology for assessment of local and vulnerability features Assessment of local and vulnerability features

57 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions - - - - Note Establishment of local - GHG inventory; regional of energy, in the sectors industry;transport, of GHG registration sinks at local / regional levels and their capacity Determining local priori with ties in accordance CC Law; setting local / regional for mitigation / targets adaptation; determining adaptation priorities in compliance with risk maps; ensuring participation of people with legal and other interests; data to be standardized and linked to the na tional inventory method In phases by sectors consider and as To sess opportunities for implementation sectoral services direct through and public - private part nership - - Indicator Assessment of GHG sources and sinks per formed locally; system Record established Adoption of a Local Plan for CC Revision of documents: EE LEAPs; Programmes; Waste Manage ment Plan; for Programme Water Supply and Waste Water Collection and Programme for Protection Harmful from Effects of Water; Area Protected Management Plan; Plan for and Protection Rescue Implementation of local actions To December 2018 December 2020 December 2020 Ongoing From From December 2015 December 2015 December 2015 December 2015 - Goals Adaptation Mitigation; adaptation of Integration CC mitigation and adapta tion issue in sectoral planning documents Mitigation; adaptation Funding Environment Investment Programme; local budget Environment Investment Programme; local budget; subsidies Environment Investment Programme; local budget; subsidies Local budget; subsidies Timeline Timeline 1-3 yrs 3-5 yrs 3-5 yrs ------Description establish a lo To cal system of GHG records on poli Priority cies determined by CC Law; cost-effective; reduction greatest in emissions and risks and negative effects of Integration priorities in LEAPs; EE Pro UPs; Waste grammes; Management Plan; River Basin Management Plan; Programme for Water Supply and Waste Water Collection and for Programme from Protection Harmful Effects of Water; Protected Manage Area ment Plan; Plan and for Protection Rescue Review of sectoral planning docu ments in accord ance with Law on CC Jurisdiction Local level: IMC LGUs; IMC LGUs LGUs Type Short-term Mid-term Mid-term Long-term - - Priority Assessment of GHG and sinks sources Setting priorities for CC (adaptation, mitigation) of local Integration priorities in sectoral plan local / regional ning documents Implementation of local actions for deal ing with CC

58 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions - - - Note the reduce To need for trans port; introduce pedestrian zones and public trans port; introduce for infrastructure alternative forms of transport; fiscal introduce instruments to the use of restore infrastruc road ture In cooperation with the central authorities Note / / setting the local / After EE targets regional with the In cooperation authorities central To December 2020 December 2016 To December 2014 December 2014 December 2020 December 2016 From December 2015 December 2013 From December 2013 December 2013 December 2015 December 2013 Goals Mitigation Mitigation Goals Mitigation Mitigation Mitigation Mitigation Funding Local budget; subsidies Local budget; RM Budget Funding Local budget Local budget; RM Budget Local budget; subsidies Local budget; RM Budget Timeline 3-5 yrs 3-5 yrs - Timeline 1-3 yrs 1-3 yrs 3-5 yrs 1-3 yrs - - - Description savings in public Planning energy lighting; buildings and street the use of renewable increasing sources energy By issuing building permits for B category buildings; inspection measures of CC mitigation and Integration adaptation in the EE Programme; savings; increas planning energy energy ing the use of renewable sources EE campaigns; Local / regional of services introduction for busi nesses and citizens to promote of efficiency; introduction energy financial instruments (incentives, and subsidies, loans) grants to measures and administrative efficiency and stimulate energy use of RES Description of CC mitigation and adapta Integration govern with central tion; cooperation fiscal instruments ment to introduce campaigns; introducing Local / regional the AFT - - - Jurisdiction LGUs; govern central ment LGUs; govern central ment LGUs / IMC LGUs; govern central ment Jurisdiction LGUs / IMC LGUs / central government Type Mid-term Mid-term Type Short-term Short-term Mid-term Mid-term - Priority Priority Revision of planning documents for trans port / Urban Plans of Promotion and public transport alternative forms of transportation Priority Priority efficiency Energy Ensuring the energy performance of buildings Revision of the Efficiency Energy Programme of energy Promotion efficiency and use energy of renewable sources 2. Energy 2. Energy 3. Transport

59 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions - Note introduce To for other measures of waste prevention generation / / with In cooperation authori the central ties To Ongoing - - December 2016 From December 2013 2015 2015 December 2013 Goals Mitigation Mitigation Mitigation Mitigation Funding Local budget budget; Central private grants; investments budget Central Local budget; RM Budget Timeline Timeline 3-5 yrs - - 3-5 yrs Description for measures Introducing of waste and reuse recycling in LGUs; implementation of local campaigns to prevent in public waste generation; - recycled procurement materials to stimulate Measures private investment fiscal Regulatory measures; measures campaigns Local / regional Jurisdiction LGUs IMC/ central government IMC/ central government LGUs / central government Type Mid-term Long-term Long-term Mid-term - - Priority Priority of waste Prevention generation Investment in instal lations for recycling and composting of waste Regulating the cap and combustion ture of methane from landfills of PPP Promotion waste regarding and use of recycled products 4. Waste

60 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions ------Note With the participa tion of LGUs With the participa tion of LGUs Revision of UP and documentation in terms of CC; IMC on the impacts sur on the areas munici rounding palities Revision of UP and documentation in terms of CC; IMC on the impacts on the surrounding of municipali areas ties IMC on the impacts on the surrounding areas municipalities and identification of inter-municipal is sues and actions To December 2015 December 2015 Ongoing Ongoing Ongoing From December 2014 December 2014 December 2015 December 2015 December 2015 - Goals CC integration in UP; mitigation / adaptation Strengthening the capacity and knowledge of local administra tion of CC Integration in UP; mitigation / adaptation of CC Integration in UP; mitigation / adaptation of CC Integration in UP; mitigation / adaptation - - Funding budget Central budget Central Environment Investment Pro local gramme; budget Environment Investment Pro local gramme; budget Local budget; Environment Investment Programme Timeline 1-3 yrs 1-3 yrs 3-5 yrs 3-5 yrs 3-5 yrs - - - / / Description Amendments to the Law on SUP and of the issue integration in UP; ensuring par ticipation; SUP data; determining the stage of SUP for integra tion of CC; Law on Construction - building to powers standards; for LGUs; standards building permits to implement in SUP measures Concrete and activities at central level concerning the Municipality in ac with local cordance in mitigation interest and adaptation in with the accordance CCR 3rd to comply Align UPs with the actual situation Jurisdiction government Central government Central LGUs ; IMC; central government LGUs ; IMC LGUs Type Short-term Short-term Mid-term Mid-term Mid-term Priority Priority Revision of the legal on SUP framework and Construction Law in how to use Training the findings about CC in spatial and urban planning (SUP) of the Integration issue in UP Adopting UP for the whole area Alignment of UPs with the existing infrastructure 5. Spatial and urban planning

61 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions - - - Note With the participa tion of LGUs With the participa tion of LGUs Revision of UP and documentation in terms of CC; IMC on the impacts on the surrounding areas municipalities IMC on the impacts on the surrounding areas municipalities and identification of inter-municipal is sues and actions To December 2015 December 2015 Ongoing Ongoing From December 2014 December 2014 December 2015 December 2015 - Goals of CC Integration in UP; mitigation / adap tation Strengthening the capacity and knowledge of local administration of CC Integration in UP; adaptation of CC Integration in UP; adaptation Funding Central budget Central budget Environment Investment Programme; local budget RM Budget; local budget Timeline Timeline 1-3 yrs 1-3 yrs 3-5 yrs 3-5 yrs ------/ Description of the issue Integration par in UP; providing ticipation and financial instruments for imple mentation; preparation of risk maps for CC groups; and vulnerable of mu the role revising nicipalities; establishing a mechanism for better of LGUs coordination govern with central ment measures Concrete and activities at the level concern central ing the Municipality in with local accordance in adaptation interest with and in accordance CCR the 3rd Alignment of plans with situation; the current of risk preparation maps and implementa tion measures Jurisdiction government Central government Central LGUs ; IMC; central government LGUs Type Short-term Short-term Mid-term Mid-term - - Priority Priority Revision of the legal on protec framework (PR) tion and rescue in how to use Training the findings about CC in SUP of the is Integration sue in local / regional PR plans Revision of PR plans 6. Crisis management; protection and rescue 6. Crisis management; protection

62 Assessment of local action for mitigating and adapting to climate change in the Vardar and Southeast Planning regions

- the survey “Assessment of local IX. Results and governance in preventing the negative conclusions from the impact of climate change”; - the analysis of the vulnerability closing event assessment of the agricultural sector(viticulture) in the Vardar Planning Region; and The national forum “Assessment of the Local Action for Coping with Climate - the economic feasibility study on the Change” was held at the Gate Macedonia proposed modular climate change in Skopje on 6 December 2013 (Friday). scenarios in viticulture. The aim of the Forum was to present There was also discussion in regard to the findings of the survey “Assessment the recommendations about the need to of local governance in preventing the amend the laws and the bylaws, as well as negative impact of climate change” and the methodologies in order to incorporate with the recommendations to jointly the CC issue (especially the regulations shape the assessment of the capacities on spatial and urban planning and the of the local self-government units in the methodologies for preparing urban plans, two planning regions and of the other local environmental action plans for waste stakeholders at a local level for coping with management, CEA, water management, climate change. The event was attended etc.). by representatives from the ministries of The conclusion from the Forum is that a environment and physical planning and training programme needs to be developed local self-government, the centres from for the local administration aimed at the two planning regions, the municipalities integrating CC into the planning process. from the region, the institutions competent Furthermore, one of the conclusions from for protection of environment, communal the workshop was that a top-bottom matrix activities, urban planning or protection should be developed of all the relevant of citizens, NGO sector and UNDP’s documents that will help in determining what expert team that carried out the survey. an activity for coping with climate change The representatives of all the relevant should incorporate and in assessing its stakeholders at the workshop were compliance. familiarised with the final findings from the The forum confirmed the findings that implemented survey and they validated resulted from the survey concluding that the them by discussing them and reviewing recommendations could be used. them. In the course of the Forum the local experts that were hired by UNDP presented their draft reports that resulted from: